Can't really say so. Jumba and Pleakley seem like the bad guys until they started living in Lilo's family, then later Gantu sorta kind of became the bad guy in the TV series.

This question is limited to the first movie only. Clearly at that time, everyone had their duties. The Grand Counselwoman was just following the law and trying to keep the galaxy safe; Gantu was doing his duty as a captain (under the Counselwoman's orders I might add) when Pleakley failed; Pleakley was doing his best to retrieve Stitch without fuss and without destroying Earth, but Jumba (who's true neutral and fond of destruction) was his worst obstacle; Cobra couldn't see how bonded Nani and Lilo were, and from what he could tell it WAS best for Lilo to be put into a protective service. There was NO real villain. In fact, you could argue easily that Jumba was the most evil person in the entire film..! He was only going along with Pleakley because he was sentenced to it, and he never renounces evil; once freed from the law, he immediately turns to destructive force to capture his experiment.