You'd be amazed at what people have made and consider it to be a website. One in particular is the City of Tishomingo, OK website (
www.tishomingo.com) It's horrible!! Whoever designed it did a terrible job. Sites like that drive me crazy, I can't stand to do much exploring in it, I usually just leave as soon as I see it. If it doesn't look professional or like it was made with any effort, then I leave.
It does make me feel good though since I feel like - "well I can do a better job than that!" - I'm still learning web design and have been doing it for a few years on my own.