It's more like making the need for a product and then selling it. That's what Vought was doing to an extent and then Homelander extended it by creating superterroristssuper-terrorists, the Female was also part of that plan.
Also what is supervillain is subjective in The Boys, like are you sure Homelander doesn't count more as supervillain rather then superhero?
Still if we go in full blakcblack and white and count The SeevenSeven as Naqib can count as supervillain for now.