Uhhh... What? This has nothing to do with budgets, headaches, or whatever. This has to do with the task at hand with the time provided. Bottom line here- Burton had A LOT more to overcome when it came to creating a Batman movie true to the character's origin than Nolan did. The public view at large when Burton's hit was of the 66 show- Biff, bam, pow and all that. With that in mind,
the main focus has to go with the main characters and establishing them as what they are supposed to be. Secondary characters become just that- Secondary. This is also a time before Batman the Animated Series, major comic films, Justice League, etc for secondary characters to really be firmly established in the public. Nolan didn't have to be concerned with any of that, and benefited from a more public awareness of both how Batman was intended to be and his cast of secondary characters... including getting to spend more time with Gordon.
What I am saying here is that there isn't anything wrong with Burton's Gordon. From what you see in the films, there isn't any reason to think of him as anything less than the Jim Gordon from the comics... Burton just didn't have the luxuries Nolan did to explore it more. But to call him a bumbling idiot? There is nothing in either Burton film to back that up. That is my point.
Oh, and for the record... Since you brought it up, I 100% prefer Jack's Joker. To me that is "Comic Joker". Heath's Joker is a "real world" take on the character...pretty divorced from what he is in the comic. That is something I myself don't prefer. But again- Different strokes for different folks. You prefer Nolan's take on stuff? Great. More power to you. It isn't my favorite though, and stating it is better as a fact or calling Burton's interpretations of certain individuals as "bumbling idiots" isn't going to change my mind.
Sallah
Burton could've developed Gordon more, even though he was a "secondary" character, of less importance than the main hero and villain. Harvey Dent, who was even
lesser known than Gordon has comparable screen time and brings more intensity to the few scenes he is in.
Gordon on the other hand devolves from a barely competent cop to an even worse version of himself, the "I-can't-do-ANYTHING-Batman-will-save us-fanboy" commissioner. His incompetence/cowardice gets even worse in the Schumacher films, but since we're limiting the discussion to Burton, the downward depiction of Gordon definitely starts there:
In almost every scene, he shows his ever increasing weakness as a police leader.
Wayne Manor party:
"Why wasn't I told about this? Who's in charge?"
(Wait, aren't *YOU* the police commissioner? Maybe if you spent less time at a billionaire's charity ball, YOU would actually be the one "in charge" and know about corrupt lieutenant sting operations before they were already underway)
Axis Chemicals sting:
Kudos to the top cop for actually having the bravery to show up in person at the Axis sting, ready to shut it down. And how prepared is the commissioner of police for the danger of a situation where there's likely to be a shootout between Eckhart's corrupt unit and mobsters? Very! He show's up unarmed (and if he has a piece, he never once thinks to take it out...in a shootout!). He directs cops where to go but he doesn't even have a plan for where to put himself for a best offensive or even defensive position (stands out in the open, on the main floor, without a weapon or even a beat cop staying with him as a bodyguard, giving both Jack Napier and Bob opportunities to take a shot at him). His most powerful police "tool" in that scene is a bullhorn, which he didn't even bring himself!
200th Birthday celebration Cathedral / Batwing crash:
Gordon does NOTHING of any importance in this scene. It's especially bad because the Joker announced in advance, where he was going to be and when. Instead Gordon and his cops show up
after the clown has been parading through the streets, Batman already saved most of the crowd from the gas, and goons were openly brandishing and firing their weapons recklessly. Why even bother to have him show up in that scene at all? His only (unnecessary) function is to direct the floodlights on the Cathedral, and find Joker's laughing pouch.
In Batman Returns, it get's even worse:
His
first reaction to mayhem in the streets isn't to call for more cops to the scene, it's
"What are you waiting for? The signal!" (please save us Batman!)
Then there's the cringeworthy line
"Thanks for saving the day Batman!" Pretty good impression of the way 60s Gordon would express thanks.
Then there's the
"H-H-Hold your fire!" scene. Burton wants us to believe that Gordon isn't in control of his own cops? In the GCPD I guess things are so bad that you gotta shoot first, ask questions later (except if actual criminals are around, in which case you wait for Batman).
Like I said, Gordon is even more ridiculous in the Schumacher films, but the character's weak trajectory was already set by the Burton ones.
There is plenty great about the Burton films, but just about everything about Gordon is wrong.