These allegorical descriptions [in the Lotus Sutra] can be understood as the development of the concept of the One Vehicle. Chapter Four described how the Buddha leads all beings by faith until they reach the final stage of enlightenment. Chapter 5, The Simile of Herbs, on the other hand, tells us that living beings are now at various levels of understanding, and the Buddha patiently and compassionately expounds the law to all of them equally, although in different ways.
Introduction to the Lotus Sutra