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.

7937. 'That you shall say' means thought. This is clear from the meaning of 'saying' as thought, dealt with in 3395, 7094. The reason why 'saying' here means thought is that 'saying' just above in 7935 meant perception belonging to conscience; but here it introduces a reply, which in relation to the perception belonging to conscience is thought.