In an electoral society, every politician has to pander to the voters in order to get elected. Cheng Bian was a super politician who wanted to be elected. So he will try his best to pander to voters. In many cases, you can't pander to voters without writing a lot of lip service. In fact, Cheng Bian was elected.
Mr Cheng must have made a lot of empty promises to voters is the conclusion that can best be deduced from the question.