That is a possibility. I had at first entertained the idea he wasn’t good–not evil, though–given some of his actions and the way he acted around others. He seemed to almost look down on Mary Margaret, even before they dated–in Snow Falls, she had talked to him about how David had grabbed her arm, and he seemed rudely dismissive. Then we have the dates with Mary Margaret, where he treated her badly. He also reported to Regina.
Yet he does have moments where he interacts with people and is very sociable. He went to Mary Margaret’s party in The Return, and he seemed friendly with many of the guests. He seems to overall be charming and confident, from his few scenes in the series and in the Singlebrooke video. If Regina wanted his help, then that means he might have either been someone very powerful, or someone that she hated and wanted to make miserable.
He could have also worked with Regina in Fairytale Land–he might have been forced, similar to the Genie. And The DA and Regina did not seem to be hated enemies. She gave him gold, and he gave her Prince Charming–they both seem to do buisness with each other, given how familiar they are with one another,