Mica, I think it can be both.
First, it has to work during the story. The audience has to care about the characters and experience the conflict through them. Film and television naturally tend to organize conflict at that level: protagonist, antagonist, hero, villain, and all the morally complicated territory in between.
But what you said about the audience beginning to question its own assumptions really interests me, because I think administrative horror asks us not to stop at the character.
I’ve thought about this for a while, even before I started using the term administrative horror. One example for me is House of Cards, both the American and British versions. I enjoyed watching the characters maneuver for power, but from my perspective the larger institutional machine often seemed relatively static, or barely moving around them.
My experience working inside large institutions has been very different. The machine may be slow, cumbersome and maddeningly procedural, but it is not necessarily passive. It can react very quickly when it wants to. Authority moves through chains of command. Information changes hands. Relationships bypass formal routes. Procedures can suddenly accelerate. An organization that seemed incapable of moving yesterday can move astonishingly fast when the right person, threat, incentive or institutional interest appears.
That changed the way I started thinking about dramatic conflict. Instead of asking only, “What is this character doing?”, I also became interested in what system makes that character’s actions possible?
One place I’ve been exploring this is in Sleeping Beauty of Catania. Angelina’s father, Alessandro, is clearly a human antagonist, but he doesn’t think of himself as evil. He believes he is doing what a father in his position is supposed to do: managing his family, protecting its status and directing his daughter toward what he considers a proper future. In his own mind, he isn’t practicing cruelty. He thinks he is practicing stewardship.
But if we pull the camera farther back, Alessandro is also functioning within a much larger administrative and cultural framework—family hierarchy, class, marriage, religion, reputation, gender expectations and the social authority granted to fathers.
I almost think of it in terms of camera distance:
Close-up: Alessandro.
Medium shot: Alessandro versus Angelina.
Wide shot: the social machinery that gives Alessandro power over Angelina.
So the audience may begin with, “Why is Alessandro doing this to Angelina?”
But eventually I want the larger question to become, “Why does the world around him recognize his authority to do it?
That doesn’t absolve Alessandro. He still makes choices and remains responsible for them. But looking at the larger system helps explain why those choices are possible, why other people cooperate with them, who benefits, who has the ability to intervene, and whether removing one individual would actually remove the structure that empowered him.
So I think administrative horror can operate in two stages. During the story, we experience the system emotionally through the characters. Then, perhaps during the story and continuing afterward, the audience begins reverse-engineering what it has seen: Who had authority? Who had discretion? Who benefited? Who could have interrupted the chain? And what assumptions did I bring into the story about who the villain actually was?
The story still has to succeed as drama first. I wouldn’t want the conversation afterward to compensate for a story that didn’t work on screen. But if it succeeds emotionally while we’re watching it and then continues working intellectually after the credits, that would be an extraordinary second life for the story.
Maybe that’s one of the goals of administrative horror:
We enter the story watching people. Somewhere along the way, we begin seeing the system around them.