The following article contains spoilers from Nightwing #93, on sale now.
Nightwing hasn't had the easiest time setting up his charitable foundation in Bludhaven. Blockbuster has hindered him every step of the way to ensure he maintains his petty control over the city. In Nightwing #93 (by Tom Taylor, Bruno Redundo, Wade Von Grawbadger, Adriano Lucas, and Wes Abbott) among the weapons he employed against Dick Grayson is Commissioner Maclean, the corrupt head of Bludhaven's police department.
Of course, this isn't the first time Nightwing has gone up against corruption within the Bludhaven police. During his earliest days in Bludhaven, there was another crooked cop who became a much more persistent thorn in his side. This same cop would eventually go on to become a crime boss in his own right, and generally caused chaos wherever he went. The question here though is: Which of these two corrupt officers is the greater threat?
Maclean's story is fairly clearcut, and so simplistic it would be easier to think of him as an obstacle to Nightwing rather than a genuine threat. He is a crooked commissioner who is in Blockbuster's pocket and uses the BCPD as a weapon against anyone Blockbuster wants to hassle or make disappear. Maclean is so deeply involved in Blockbuster's organization that he was charged with disposing of the previous mayor's body after Blockbuster murdered him.
He is also, vastly outmatched by Nightwing. As the commissioner of Bludhaven, Maclean is used to having a sort of unconditional authority with the ability to cover up his tracks in a legal sense. However, an entire police department can't really compete with the hacking genius of Oracle. Maclean's "brilliant" plan to sabotage Haven was upended in less than twelve hours, leaving him humiliated, and in all likelihood, soon to face charges.
Now, let's take a look at Torque, a relatively obscure villain from Nightwing's past, but one that gave him his first real exposure to the level of corruption within Bludhaven. Initially known as Officer Dudley "Deadly" Soames, Torque was introduced in Nightwing #1 (by Chuck Dixon, Scott McDaniel, Karl Story, Roberta Tewes, and John Costanza) as the most corrupt cop in the entire BCPD. He was the one that Blockbuster went to first to put a hit on Nightwing.
What no one could anticipate was that Soames' corruption wasn't motivated by being bribed, but by accruing personal power. He intentionally let Nightwing go, suspecting that the hero's presence in the city would disrupt the balance of power and create an opening for him to carve a piece of the city out for himself. From there, he began playing all sides, feeding Nightwing information on Blockbuster's activity, serving Blockbuster as a mob lieutenant, and even working his own commissioner, all in an attempt to gain a little power.
Eventually, Blockbuster grew tired of his antics and planned to have him killed. This was when Soames' true villainy displayed itself. He took Blockbuster's mother hostage in an attempt to gain a bargaining chip. Unfortunately for him, he could not hold onto her long, and Blockbuster punished him by twisting his head around 180 degrees. What's horrifying is that he survived this.
Soames' windpipe was undamaged by the attack, buying him enough time to be saved by a breakthrough surgery. However, the doctors could do nothing to restore his head to its original position, as any attempt would kill him. Enraged, Soames killed his doctors before teaching himself how to operate normally with his head twisted around. He took on the gruesome name Torque, and decided to become Bludhaven's newest crime lord.
He started a new gang war to seize control of the city. However, he was defeated, and eventually killed by a more ruthless vigilante named Nite-Wing. Regardless, Torque's brief time as a villain saw him evolve from crooked cop to full on supervillain. In comparison, Commissioner Maclean is nowhere near as deadly on an individual level. He has his corrupt officers do his dirty work while he reaps the benefits. The instant he stood up to Dick Grayson he was embarrassed and thrown into legal trouble. Torque didn't put up with any of that. He just got more violent and crafty before striking out on his own.
However, in terms of the damage that could be done, it's possible Maclean was worse than Torque. Whatever else Torque was, he was not a focused villain. His very existence incited chaos for everyone, weakening all sides for his own gain, but probably hindering their own operations in the long run.
In contrast, Maclean was Blockbuster's weapon. A gun he could point at anyone who challenged him. Under Maclean's leadership, the BCPD is almost entirely under Blockbuster's control and is used ot oppress the people of the city, rather than protect them. His personal reach may be limited, but the broader scale has caused incalculable damage to the city and the trust it puts its supposed "law enforcement"