The Administrator is playing a Xanatos Gambit of some sort. I would be surprised if she didn't have direct access to every video feed and computerized security system in the whole city. She facilitated Yūrei's entry into the military councilman's office. I don't doubt she could have facilitated the inmates' escape and attempt at Otterton's life, but she isn't the one looking to make things happen in front of the cameras or else she wouldn't have sent Yūrei to deal with the assailants at the DMV because she would have been the one to send them in the first place.

I think someone else is making things happen in front of the cameras to send a message to the Administrator herself. They want her to see it, even if the results might be less than what they're looking for. I do think they fully intended for Emmet to die, at the very least, even if they expected Nick to keep Judy safe. The Administrator is the one using the flame of Judy and her crusade to draw out the big moth behind the attacks. I suspect it will be a while before we find out what long term objectives these events will serve.