If the need for relief is beyond what the congregations in the area can provide, the Governing Body of Jehovah’s Witnesses arranges to supply what is needed. [...] Since the work is performed by unpaid volunteers, the funds that are allocated go toward actual relief, not administrative expenses. - JW site
In the context above, "arranges" is in fact administering. Considering that the administrative work is done by the Bethels where everything (building, food, clothing, etc) is paid by the donations, I don't understand how they can claim that the funds don't go into administrative expenses.
In fact, sometimes, it is the exact opposite; it goes solely into the administrative expenses! How? Bethel administers the local elders who collect food, clothing, etc from the surrounding congregations. While none of these things are paid by the donations, the travel expenses of the Bethelite(s) administering the whole thing is.