Tao te Ching: 49

The sage has no fixed (personal) ideas.
He regards the people's ideas as his own.
I treat those who are good with goodness,
And I also treat those who are not good with goodness.
Thus goodness is attained.
I am honest to those who are honest,
And I am also honest to those who are not honest.
Thus honesty is attained.
The sage, in the government of his empire, has no subjective
viewpoint.
His mind forms a harmonious whole with that of his people.
They all lend their eyes and ears, and he treats them all
as infants.

Lao Tzu says that the sage, the good leader, doesn't have a personal agenda. He reacts (as much as a ruler of wu-wei reacts) to the will and needs of the people, but always deals with goodness and honesty. Goodness is subjective to so many people, but haven't you known someone who seemed wonderful and good, even though you just met them? Even if they don't agree with you? This person is gentle and subtle and feminine (passive, vacuous), all the things we would want to see in a mother. That is why these are all metaphors Lao Tzu uses for the Tao.

This method of behavior is what Lao Tzu means.