As with many common verbs, the meaning of “to say” in the Bible is highly dependent on context. Who is speaking? Who is hearing? What is it about? Is it a command, a message, an apology, instruction? All these things enter into the meaning of “say.” In general, though, “saying” has to do with sharing truth at various levels -- from the most exalted power people can have to perceive the Lord's desires directly to the most basic of orders issued to people at their lowest.

230. It must be known, however, that the angels have no power whatever of themselves, but that all their power is from the Lord; and that they are powers only so far as they acknowledge this. Whoever among them believes that he has power of himself instantly becomes so weak as not to be able to resist even a single evil spirit. For this reason angels ascribe no merit whatever to themselves, and are averse to all praise and glory on account of any thing they do, ascribing it to the Lord.