Having apparently gotten enough distance from The WB's Batman-less Batman series Birds Of Prey, Fox is planning another Batman TV show without the crucial element of Batman. Gotham, created by The Mentalist showrunner Bruno Heller, will focus on the early career of James Gordon, the police officer who eventually becomes Commissioner and has lots of adventures that include Batman, unlike this show.
Gotham is clearly intended to compete with ABC's Marvel's Agents of S.H.I.E.L.D.—another show about superheroes in which those superheroes are conspicuously absent. DC has already had some success with Arrow, a show in which Green Arrow appears weekly, and is going ahead with a show based around The Flash, who will be a regular character on the show that is about him.
Again, that's not the case with Gotham, which will also explore the origins of Batman's rogue's gallery of villains. So expect to see plenty of familiar faces, which may or may not include the Penguin, the Joker, the Riddler, and other well-known Batman characters who aren't Batman.