I mean, every other line he says is about the boys using their sack so probably supposed to be a very sinister character.
I don't think he's the terror, the system he sits in the throne at the top of is. I don't think it's a coincidence that the main antagonist of a story so much about characters that are given full names never has his full name ever stated let alone even just his first name or surname, he's always referred to as The Major.
Lot of subtext there about people who by themselves can be considered jokes but turn into something truly heinous when they became 'leaders' of things like the government. Just my take, though!