At least occasionally in Batman stories it is argued that Batman is the inspiration for his colorful villains. If Batman did not exist, they would not be the dangerous psychopaths that they are. So far from protecting Gotham, Batman is endangering it.
In the real world there is no Batman, or anything close. There also is no Joker, Riddler, Penguin, or Cat Woman, but there are many colorful criminals and gangs with outlandish names, tattoos, symbols, gestures, rules, etc. My point is that while there is nothing in the real world that is anywhere close to Batman, the real world does produce criminals that more closely resemble Batman's rogues' gallery.
So I conclude that Batman did not create his rogues' gallery, because there is no Batman, but his rogues' gallery, while unrealistic, is considerably closer to reality.
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