This question is fraught with politics and other highly sensitive topics, so I’ll try to avoid getting too specific, but it seems to me that thinking of this sort of thing purely in terms of a potentiality relation rather misses the point. A self-extracting binary, a .torrent file, a million lines of uncompiled source code, and a design document are all, in different ways, potential programs, but they differ from each other both in degree and in type of potentiality. Whether you’d call one a program in any given context depends on what you’re planning to do with it.
This question is fraught with politics and other highly sensitive topics, so I’ll try to avoid getting too specific, but it seems to me that thinking of this sort of thing purely in terms of a potentiality relation rather misses the point. A self-extracting binary, a .torrent file, a million lines of uncompiled source code, and a design document are all, in different ways, potential programs, but they differ from each other both in degree and in type of potentiality. Whether you’d call one a program in any given context depends on what you’re planning to do with it.