Gotham cannot be governed by law and order, but can only be suppressed by fear. This was a fact Jim and I knew. The only way to instill law and order was by fighting fire with fire.
Sure, fear is a proven motivator to retain peace, but it too can be used to create chaos.
Croc uses fear in the form of natural, instinctive fear—fear of his build, his animalistic disfigurement and his criminal record.
Jonathan Crane uses fear in the form of biological gases- upfront, straightforward fear.
The Riddler uses his riddles as a medium—a fear that dire consequences will be meted if one fails to piece his clues into one. A fear that what could have been averted was not, and it was due to your incapacity to chisel out the answer staring right at your face.
These three criminal masterminds are extremely capable, but none has ever thought to use fear, not as a motivator, but as a product. A concoction of ordinary elements that ultimately form fear—fear as a compound. Fear at its finest form.