It depends on whether you're classifying based on intentions or on results. When you're using the word "bad guy", it implied the intentions to be bad/evil. Howe

It depends on whether you're classifying based on intentions or on results. When you're using the word "bad guy", it implied the intentions to be bad/evil. However, it's easy to see that a complex system can't (normally) be assigned an intention. But even if every actors within the system is acting in good faith, the emergent behaviour can still have bad result. In the case of government, it's definitely not complicated to classify the aggregate behaviour as unqualified bad (in term of result), regardless of the intention of the individuals working within the systems.