The biggest problem with Gotham is that Jim Gordon can't win. He can't make any headway, he can't defeat the villains, and he can't cleanup Gotham. Why not? Because if he did, there would be no need for Batman. Batman arises as a direct response to the entrenched corruption and ineffectiveness of Gotham's law enforcement and judicial systems. Gangsters who operate with near impunity, a police force that is either on the take or intimidated into silence, requiring someone outside the law to take the fight to them - to break up their operations, disrupt their organizations, to give them something to be afraid of, to give the good people of Gotham a chance to go on with their lives. So if Jim Gordon is at all successful, he essentially negates the development of Batman. The result is basically going to be an urban crime drama of Gilligan's Island - despite the variety of situations, the overall arc never really progresses, because it can't.