I'm thinking though that Bruce wants to expand the influence of Batman across the world and not just keep it centralized to Gotham City.
Understandable, but as I said, how do you insure top-grade talent? How do you find people who are worthy of the title and can be trusted not to abuse it? I mean, there have been a couple of prior cases where "stand-in" Batmen such as Jean-Paul Valley didn't work out too well.
I wonder if maybe the way to go would be to bring in some minor DC heroes who haven't been used much in recent years and give them a Bat-makeover. That way you'd be dealing with people who have already proven themselves as heroes.