I dont think there will be a main villan as such.
I feel this story will be about Bullocks hunt for the Batman against Gordons will whilst the Batman still goes about his business of rounding up bad guys. I think we will see a rougues gallery of the smaller villans and a Catwoman subplot surrounding this, people saying they have seen a figure in the shadows with ears etc etc which leads to Bullock actually chasing Catwoman thinking it's Batman.
This will catch Batmans interest and he will seek out the Catwoman and the story will go from there, the obvious ending will be societys acceptance of Batman as a hero and not the villan.
Will Two-face be in it.? No BUT I think himself and the Joker will be referenced.