Thats pretty much what I was saying, just doing it without Necromancers
EDIT: I'm just saying you shouldn't compare Hitler to a fictional character and say the fictional character was a worse evil
But, she'd see the necromancers as neccessary to the unification of the provinces. She couldn't have
them rebelling just because she doesn't like them, and her pragmatism would lead her to conclude that their legions of the undead could be extremely beneficial in bolstering her otherwise pitiful forces. There aren't enough mages to enforce her NWO. If she is a mage supremesist, which is likely, she would believe that non-spellcasters are too base and unsophisticated to be entrusted with running the nation. Since the necromancers are often
powerful spellcasters, it is in her best interest to recruit them.
She doesn't have normal legions because they disagree fundamentally with her "Only spellcasters are worthy of any power" idea, and if an organized, militant faction were given power, their rebellion would sink the Empire, so she is in effect an
enemy of the Imperial Legion. With only a few elite completely on her side, she has to make up for the critical shortage of mooks with whatever she can. In this case, it is undead, mind-controlled people, and swarms of Daedra. Advances in the study of magic could make conjuration, illusion, and necromancy strong enough to accomodate the huge numbers of mooks under control of each mage.
@edit: Especially considering that the fictional character was a
parody of evil.