Sure. But you can take a step back from there and assert the crime cartels of the earlier era - the Falconnes and Mannheims and Marchettis - and their corrupt police confederates created Batman (since they’re indirectly the cause of his parents’ death and the main antagonists that head up the crime wave that young Bruce pits himself against).

And since there’s a (even in-universe) hard association between organized crime and the various state and federal intelligence agencies, I guess you could put the entire Batman Villain universe at the feet of Harry Truman, J. Edgar Hoover, and Allen Dulles.