It is to Israel as is clear from v 14 and the entire context. The God who is speaking however, is the same God, all His attributes and character, forever unchanging, "no shadow of turning" with Him. In this context He is speaking a covenant promise to a nation, Israel, that He was in a covenant relationship with. So what we see here, and can apply to us, is how God relates to His people He has made a covenant with. Matt. 26; 27,28"And He took a cup, and when He had given thanks he gave it to them, saying'Drink of it, all of you, for this is my blood of the covenant, which is poured out for many for the forgiveness of sins.'" His people dwell beneath the shadow of His wings.11 For I know the thoughts that I think toward you, saith the Lord, thoughts of peace, and not of evil, to give you an expected end.
12 Then shall ye call upon me, and ye shall go and pray unto me, and I will hearken unto you.
13 And ye shall seek me, and find me, when ye shall search for me with all your heart.
14 And I will be found of you, saith the Lord: and I will turn away your captivity, and I will gather you from all the nations, and from all the places whither I have driven you, saith the Lord; and I will bring you again into the place whence I caused you to be carried away captive.
this is promised to the children of israel .. do we apply this in the n.t era mainly 12-13
The really good news, the nation covenant with Israel was conditional. The covenant we are in, the covenant of faith, has no conditions. Well it does, but Jesus met all the conditions perfectly, He did the work that we cannot do, and it is His righteousness imputed to those who believe, His righteousness that brings us into this covenant with God, Father, Son and Holy Spirit.