Think about it. Gotham City bears striking resemblance to the way many Americans view their country. We, for instance, see venal politicians serving special interests and power. In one telling scene we see the impotence of officials and the public in Batman's absence, while public relations consultants are making evil appear good. This, though, is only a small part of the symbolism embedded in Batman Returns .
Many people believe that they are in the hands of forces they can neither understand nor control.
They believe that the government serves not the people but the mysterious interests that fund candidates for office. They believe that they are subject to a government that taxes more and more and returns less and less. Indeed, the government cannot provide even the minimal service expected of a government, to keep its people and their property secure. Streets have become battlefields. The police are unable to protect them from muggers and murderers, or their children from the temptation of drug pushers.