To be fair to Batman, both the corrupt and non-corrupt police has made it very clear they are just waiting for him to "break" the law and do something over the line so they could arrest him. Gordon in many continuities points it out to his face that he would arrest him on the spot if he did.

He can't change the fact that the police themselves are incompetent and either obsessed with letter of the Law or easily paid off. And that leaves Gotham with zero law besides him and other vigilantes, who are complete crapshoots if they have any notion of betterment or just want to hurt people.

The bigger problem is most Batman works are written by idiots who just assume "no kill cuz muh morals" instead of it being a complex issue where he loses either way and he is sunken cost into this dumb one.