tldw:
In a political context, the phrase means to generate public approval, not by excellence in public service or public policy, but by diversion, distraction, or by satisfying the most immediate or base requirements of a populace, by offering a palliative: for example food (bread) or entertainment (circuses).
It is attributed to Juvenal (Satires, Satire X), a Roman poet active in the late first and early second century CE.