I think maybe King's playing with the idea that villains only pop up in Gotham in response to Batman being there. Here's a villain that was created in response to Bruce Wayne, with no connection to the bat.
And attempting to frame Batman's villains plays into that, in an interesting way.
He seems to have bought into the 'Batman breeds villains' thing, while seeing Bruce Wayne as the hero. By making it look like Zsasz and Two-Face did this, he discredits Batman (or at least thinks he does), allowing focus to shift to Bruce, where it should be.
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scans_daily2018-01-04 06:50 pm
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He seems to have bought into the 'Batman breeds villains' thing, while seeing Bruce Wayne as the hero. By making it look like Zsasz and Two-Face did this, he discredits Batman (or at least thinks he does), allowing focus to shift to Bruce, where it should be.