The Tao expresses that it is in control of what's going on. The Tao is in control. The person feels, however, as if they are in control and that they can do what they wish. This results in the unknowing creation of ignorance within the person.
"Some think they can control what goes on.
I don't think anyone can.
The flow is sacred, digests
all volition: observe it
perturb it, try to hold it
lose it.
So sometimes ahead and sometimes behind,
sometimes hot and sometimes cold,
sometimes strong and sometimes weak,
sometimes on top of it, sometimes under.
So don't strain, spend too much, be smug."
-Tao Te Ching [29]