Elsewhere in Gotham City says says “Villain Creepers held by others do not prevent you from winning”…

A: So, the thing about Creepers in MOST Fluxx versions is that they prevent you from winning if you have them. In Batman Fluxx, however, the Creepers are special, and affect others in addition to you: Creepers anywhere on the table prevent everyone from winning with a Goal that doesn’t involve Villains. So the Elsewhere In Gotham City Rule makes Villains work the way Creepers do in most other versions: other people’s Creepers don’t prevent you from winning… but your own Creepers are still a big problem for you.

That’s the idea behind the theme of this Rule: all that trouble is going down Elsewhere, but here where you are, it’s fine… unless it’s not, i.e. you DO have crime (Villains) in your neighborhood, in which case you can’t win with that Goal.