The Rights Managemenent Web ui is meant to be used by "end users" who have the permission\ability to create and manage their own "personal" policies. To access this interface the user need to have the "LiveCycle Rights Managemenent End User" role assigned to them (to provice sufficient permission).
If you assign this role to the "Administrator" account then you will be able to login to the RM Web UI, but remember, this UI is not meant for the Administrator. To create ploicy sets policies as the Administrator, you should login to the LiveCycle Administrative UI, select Services > LiveCycle Rights Management ES2 > Policies.
One last thing, if you want the end users to be able to complete their own policies, then as Administrator you must ensure that you configure "My Policies" by adding the domains that contain the users who you wish to allow the policy creation option. This is found in the Adminui under Services > LiveCycle Rights Management ES2 > Configuration > My Policies
Regards
Steve