This is referring to the dual system of politics and religion.
 A Wheel-wielding Monarch (cakravartin) is the de facto ruler of the entire universe, bring all under their control single-handedly. They tend to govern the world system in accordance with the spiritual and or universal law, the dharma. For more information, please refer to The Princeton Dictionary of Buddhism.
 zhabs drung 01 ngag dbang rnam rgyal, BDRC P509
 phyogs las rnam par rgyal ba
 dpal ldan 'brug pa phyogs las rnam rgyal