She has made a somewhat Faustian bargain with the other warlords and by extension the emperor. She is very different than them in caring for outcasts, but the state is still the source of her power, so when the emperor wants the deer-god's head she goes hunting, thinking quite naturally that this is the best she can do for her outcast villagers. Money for the village's needs (they are far from self-sufficient), the emperor's favor, and (as far as she knows) an end to god-attacks on the village? Of course she goes. The villagers are equipped to deal with more short-term threats, she made sure of that.
She is absolutely a non-evil, non-villainous antagonist.
She is absolutely a non-evil, non-villainous antagonist.