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.
Hosea 7:11-13
11
"Ephraim is like an easily deceived dove, without understanding. They call to Egypt. They go to Assyria.
12
When they go, I will spread my net on them. I will bring them down like the birds of the sky. I will chastise them, as their congregation has heard.
13
Woe to them! For they have wandered from me. Destruction to them! For they have trespassed against me. Though I would redeem them, yet they have spoken lies against me.