Moses made a strong link between God and judges when describing how property disputes should be resolved.
If a man gives his neighbor silver or goods for safekeeping and they are stolen from the neighbor's house, the thief, if he is caught, must pay back double. But if the thief is not found, the owner of the house must appear before the judges to determine whether he has laid his hands on the other man's property. In all cases of illegal possession of an ox, a donkey, a sheep, a garment, or any other lost property about which somebody says, 'This is mine,' both parties are to bring their cases before the judges. The one whom the judges declare guilty must pay back double to his neighbor (Ex 22:7-9).
When Paul spoke of excellent judges in Romans 13, he was probably referring back to Exodus 21 and 22 and this reference to the best judges.