I'd say that's more exclusive to Batman as a whole though. Superman's villains tend to just be incredibly powerful beings so they can pose a threat with his strength. Or Wonder Woman, where I think most of her villains tend to focus on their own versions of Greek and other mythologies.

In Batman's case, his more well known villains tend to be themed around him in some way. Like Scarecrow on Batman's use of fear as a tactic, or Two-face representing his duality with his identities. And that many of his villains lean more towards a sympathetic side as they're just mentally ill people who've had a rough go at life. It also helps that Batman's the most well known and exposed hero out there, so it gives more attention to his villains as they're created and re-written over the years to work better with him. Freeze being a great example of that.

Both the heroes and the villains on DC are better because they all live in a society and that is literally their main motivation.