I think the key thing to remember is that Gotham is corrupt. Horribly, horribly corrupt. Look at the state of where Vic lives. No one is helping them. The police aren’t paying attention. Most of what Oz is doing is underground, literally.
A huge road collapse is probably Batman worthy, but that all happens and is resolved in a day. Plus the Councilman is given a story with a clear bad guy (Sofia) and that’s solved quickly. The police don’t need Batman to solve it because it’s a straightforward case.
Even the Bat signal at the end isn’t a direct threat. Oz has just been told the city is his and nothing stands in his way. The Bat signal is a reminder. The Penguin can control the already corrupt police and government. He’s good at it. Batman? Not so much.
That is a good rationale for how things played out as they did. However, it does not change my opinion on this series by much. I still look forward to the next movie instalment.
BTW, I was not expecting a response when I made the comment. This community seemed deserted. Thanks for engaging here. I see you have made a few other posts and comments in this community.