In the video from Disney, Bob Odenkirk and the character designers described Winston’s qualities.
As Odenkirk notes, at first his character comes across as the bad guy but he has honorable motives to help supers come out of hiding and rejoin society.
The plotline is a bit reminiscent of the original film, since Mr. Incredible is recruited by a mysterious employer to do hero work to relive his glory days in tights.
The studio of course wanted to keep audiences guessing about who was the genuine threat in Incredibles 2 with a variety of contenders revealed throughout the movie before the main villain was divulged.
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Incredibles 2 | Heroes and Villains: Winston Deavor