I may be reaching, but from everything I've remember Ennis saying before, in interviews or in his comics themselves, he sees Batman and his rogues gallery as a bunch of toffs having a fancy dress party where the lower classes of Gotham pay the price; Waylon pays the piper for the nastiness on display that's bad enough to bring in outside forces. A government that Ennis puts on pretty even ground against Batman in terms of their self-opinion and how they view the other as tiresome, mostly useless, and myopic, I noted. Heck, you could even say that Waylon was picked as the fall guy here for Batman's portrayal because of his various intersectionalities (regardless of how much Ennis has said he hates identity politics). If I were being generous to Ennis, instead of character assassinating Batman he is displaying his preference for retributive justice in his narratives and this is just how Croc gets his, but that feels like even more of a reach. If the stuff he read was from the 70s and 80s, he would definitely be basing his Batman portrayal in the international and government stuff that had Bruce Wayne working with the CIA overseas when he had to and saving Ronald Reagan's life and leaving an at least one opponent to die rather than let them go free.