Tim Burton’s Batman 2 had a similar feel to other villains.
Penguins that appear in general original works and comics are
Unlike villains like Joker or Bane
I’m not that obsessed with Batman.
I just see it as a police officer interfering with my business.
They don’t see Batman as an adversary like the Joker, or as someone who must be killed like Bane.
From Batman’s point of view, he is not a dangerous villain who must be captured and thrown into Arkham.
It feels like a kind of informant who goes to Oswald whenever and wherever he needs a clue, makes a moderate threat, and lets him go.