Yes, she sort of does. How do you think she repopulates her forsaken? She grows them in the ground? Oh wait...
And fyi, Bolvar maintains a mind control over them because all of them going their own way a la Lilian Voss would put the entire world in danger (hence the whole "there must always be a lich king" bs) so it's not like he enjoys them not having free will as much as being somewhat responsible for what they would do if he DOES NOT keep them in check.
All of that might not be needed with the forsaken, or them joining with his scourge might actually provide a window of opportunity for him to release said mind control and actually give them a purpose alongside the forsaken
And I can't really call her king now, can I? Calling people edgy at every turn seems to be super edgy in itself nowadays