This headline gives "Trump Administration" the agency. Similar articles give "Trump" as the actor. Can we read something in to the headline? That is, does a "T

This headline gives "Trump Administration" the agency. Similar articles give "Trump" as the actor. Can we read something in to the headline? That is, does a "Trump Administration" headline imply something like people in the Trump admin are doing this, while a "Trump" headline means that Trump himself is pushing the issue?