You're thinking at such a small scale. Give every person in an army a scroll of Windwalker and you can take cities on the other side of the country by surprise. Then if they have a second scroll of the same effect, they can all go home that night. Several people with scrolls of Mark/Recall could mark the middle of town and recall sleeping minotaurs there during a coronation. People could be buying command humanoid scrolls to make people become suicide assassins. Men could be using the charm spells to commit unsanitary acts with normally unwilling women. Terrorist figures would buy a fireball scroll and burn down local hamlets if they weren't paid ransoms. A man uses a damage intelligence scroll on the local farmer to make him give up his land for free rides on his own packhorse.
You know, if the King has enough high level enchanters, and manages to slay enough daedra for the grand souls required to imbue 20,000 scrolls of Windwalker, then I guess he deserves to take cities on the other side of the country by surprise, if they havent already pre-emptively beaten down his drawbridge while he is busy in his scriptorium lashing a whip at 100 very tired enchanters.
Most proficient mages were only able to teleport themselves, so I find it a stretch to assume an enchanter would be able to make a scroll that teleported someone or something else. If it was made plausible and consistent with lore however, I see no reason why one, or several, people could not teleport minotaurs into town during a coronation, sounds like an interesting story device, you know, for roleplaying... Though I guess if teleportation were so comonplace, then the emperor's wizard, or even the emperor himself, would just teleport said minotaurs to the top of Dive Rock.
Command Humanoid, when cast by a master illusionist, typically lasts for a few minutes at most. Its feasible that an expert illusionist and enchanter may make a powerfull command humanoid scroll that lasts long enough for an assasination, though it would take a particularly callous mage to leave such a scroll laying about to be used for such nefarious ends. Presumably most apprentices would actually take several lesons in ethics of Magicka, that is if their not running around performing cantrips for peasants, which would give them some grounding in the ethics of when and why one would create a scroll, or staff, or potion, or any other enchanted device, that would allow one control over another sentient being. Though I guess someone like Mannimarco would have no qualm in doing such things, if he felt the need to use silly illusion tricks instead of just controlling dead bodies. Overall It would make for a good plot to track down and find the perpertrator.
People using charm spells on others for "unsanitary acts" sounds more in the relm of love potions, which is probably rather common, though charm spells do wear off after time, and nothing in a charm spell makes you forget what actually happened while you were charmed. I suppose some fools might try it, but a court room and a expert mage giving evidence against them would have them facing prison for charges akin to [censored].
Terorists using fireball scrolls... probably, but then they will use whatever they can, and I think it likely that oil and a flaming arrow would likely do the job cheaper that purchasing a prepared scroll for the job. Of course if you could steal the scroll, why wouldn't they use the scroll.
As for damage inteligence spells, as a destruction spell it is automatically recognised as an act of assault. Its not hard to image that town guards if not most persons are taught to recognise destruction spells in such a magic rich world. Especially given the speed with which guards and civilians react to hostile spells being thrown at them. If you managed somehow to acquire a scroll that reduced a persons intelligence to the level of a mudcrab, and were not seen using it, it likely that you could get away with such a rort. Untill someone else notices that farmer joe is drooling and making grunting noises in the corner, in which event I'm sure they would take him to the local curch to be healed, and the authorities would want to reverse any recent "business transactions" that he had conducted whils being mentally ill.
So you see, whilst you claim you want Nirn to continue to be a world rich with magicka, you dont seem to recognise roleplaying opportunities in such a world. So what if scrolls can be made, they do not replace mages, they simply suplement them. Scrolls consume resources to make, and they should not be cheap.
Even were it to be the case that scrolls were cheap and widely used (which i hope they are not, expensive and moderately powerful would provide a more interesting world in my opinion) the world would need to have laws and means to minimise chaos reguardless, so it only enhances the posibilities for role play by those with imagination.