There was a problem with Bat events for a bit in the late-90s early 00s. They either had a very strong concept, or a great beginning, but the ending was never satisfying. But all of them are, collectively, more satisfying than this, Officer Down. Why?
It's not a Batman event, for one thing. He's either brooding ineffectually over Jim Gordon, or running around like a chicken with his head cut off. And despite Jim Gordon being the character everyone is trying to work toward a resolution for, it's not a Gordon event, either. It's not a Gotham PD event. In the end, it's not even an event event. It's a story in which a cop is shot, and none, ABSOLUTELY NONE of his friends or coworkers can put the guy responsible away, upholding his ideals and ethics, and so dissolutioned is he, he retires.
This is a story of failure. That's not what super hero EVENTS, multi-title crossovers, should be about. There can be small failures here and there, but super heroes ultimately have to be effectual, otherwise WHY ARE THEY AROUND? We've got enough failure and ineffective law enforcement in the real world. Super heroes are SUPPOSED to be a fictional conceit that allows for a better way. Sure, escapism, but what's wrong with that? Every fiction is a little escapist, otherwise we wouldn't read or watch them.
The only good thing to come out of this cross-over was Gotham Central, but how much better would it have been if Gordon had been around for it? Maybe it would have lasted longer.