He did not have enough gas to scare the whole city, so by evacuating it he and his militia controlled the city (only having a mild resistence from the police). this way they have gained access to the ace chemicals and started mass producing the fear toxin so it would match the city's scale, scaring both non-scarecrow crooks and the police, making batman scared and exhausted while he tried to save the police and criminals AND nature of gotham, which in return would weaken batman so much that he could be broken.. and the plan almost worked too. + if this failed and scarecrow escaped he would still have enough toxin to match many more cities.
tbh the design only by its looks is upsetting my ocd bad enough..
I just refuse to believe that this design was best they could come up with.. if it's like that than what should we expect from the movie itself?
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