Actually, in most tanks there will be a reasonable amount of bacteria outside one's filter. It will be on any hospitable hard surface in a tank. However, the critical determinants of how much and where the bacteria may be is a function of two factors. Bio-load and hospitable surfaces available. Hospitable means good circulation so a constant supply of food and oxygen are available. The more bacteria one needs, the more places it is likely to live, especially if they are hospital surfaces.
In some tank situations one should actually find more bacteria outside of the filter than in it. A tank where maint. is lax and media is allowed to glog regularly is not a hospitable place for the bacteria. So in a tank like that, the bacteria are going to be a lot of other places. A clogged filter may not be a good home but it will still provide circulation and oxygenation.
Bare bottom tanks are not the best place for bacteria to be living. However, the decor one may put into the tank should be. Rocks and wood can all house it.
It is also worth noting that in the scant amount of research into the nitrifying organisms specifically in fish tanks, samples of the bacteria to be cultured for the research are obtained from both the filter media and from the substrate. Lastly, how many threads have we seen where somebody reports having a mini-spike/cycle after they changed their substrate?
It is an over simplicification to say there is not a meaningful amount of bacteria outside of ones filter(s).