Considering Gotham is one of the most corrupt cities in the country in the setting it's in, has more mass murdering psychopaths than any place else that they can't seem to keep locked up let alone the practical army of regular thugs that inhabit the city working for those super psychopaths, mobsters, or themselves, and people have to be pretty much afraid just to get up and go to the bathroom, Metropolis as bad as it is would have to win by default.