If I were in charge of this book?
First off:
I'd divorce Azrael from the Batuniverse. Most Batman fans hate his guts, loathe anything involving him, and refuse to pick up books featuring the ursurper. I'd wait until this book had a turnaround before trying to entice new fans to it. Why attract readers to be a book that's shit?
The dhaise-fixes:
#1- Eliminate the convoluted backstory: I'd start my run by creating an arc that _explains_ how all these people are in the book, and what their relation to JP is. As it is currently written, this book expects its readers to have followed Az's exploits from day one, without missing anything. When your title character is only featured in one book a month that isn't advertised (and isn't really that hot to begin with) you can't expect all readers to have read EVERYTHING.
#2- Ban the Batman (or The Bat-Man if you prefer). JP will never be thought of as a viable character in his own right (which is the point of headlining a book) when he's little more than a Batman stand-in. He had his chance to work with the unforgiving Wayne, and he blew it. JP is directly responsible for a LOT of damage to Bruce, and until both men are able to get past it, I wouldn't have them crossing paths. We've already seen the dick grayson puppy dog bit, and we've already killed off jason todd the incompetant asshole. Divorce Az from the bat mythos, at least for a while, he suffers in comparison. If that means removing JP from Gotham, so be it. Star City could always use a new hero.......
#3- The Order of St Dumas- who fucking cares? In the mini, the Order had whittled away to 'a half dozen old men', by the ongoing, it was still a world power with cathedrals full of acolytes and assassins in numerous locations. Then it got 'wiped out', and now suddenly, it's 'aisian office' is a power again. Detail what the Order is, what JP's relationship with it is, and stick with it. Personally, I liked the crumbling cartel of stubborn men keeping old secrets, and I'd like to see Az do SOMETHING either for or against the OoSD....
#3- Costumes- The focus of this book seems to have shifted to 'what outfit will JP wear today'?. The old one still strikes me as one of the most distinctive, original, intimidating, and cool designs in the DCU. The new one is generic with nothing saying 'Angel of Death','Order of St Dumas', or 'Dangerous'. the new one says 'Just another super hero', and it does so blandly.
The latest costume just strikes me as an excuse to change suits once again, but because of the simularities to his original costume I could live with it.
#4- Focus on a direction instead of starting a new one. Az has had 3 'bold new directions' in as many years, and they are indistinguishable from each other. Agent of the Bat is a byline to sell books, not a job description. JP has been running errands for Bats since day one, his 'promotion' didnt change his role. He's no closer to the batfamily than he was at the end of the first direction in his book. O'neil likes to sit on subplots, have all the action and resolution occur 'offpanel' and then show us all these (not so)dramatic changes as if they should matter to us.
I would label his direction: A Peaceful man trying to make up for past failures, which he has a lot of. the only 'real' success he has had as a hero has been his ability to beat the shit out of Bane (twice).
How to define this character, increase his exposure, and make him interesting?
Teamups. Or more accurately, actively opposing the badboys of the DCU. The competant, got their shit together cool as ice guys who don't tune out in a fight, don't lose their cool, and are professional.
Azrael the bumblefuck assassin crossing paths with Slade Wilson again.
Azrael attempting to protect someone from Deadshot.
Would Azrael be able to defend Nocturna from a pissed off Night Stalker?
For a more symbolic encounter, cross this 'avenging(fallen) angels path with etrigan the demon.
#5- A rogues gallery. A worthy rogues gallery. If you are only as good as your opposition, Az couldn't take out timmy drake or bart allen.
Bane would (or should) be a bit more concerned about the guy who spanked him twice, cost him gotham, and tarnished his victory over wayne. I'd focus his hatred more on JP than BW.
Nicholas Scratch could stick around, since he's all the things JP isn't..well recieved,talkative, and charismatic. He's also a pretty thin character that could have any number of subplots or character development tossed his way while still being famaliar to the 4 people who bought this book during no man's land.
Biis. for a while ,leHah assumed the role of biis, az's theological counterpart.. If I were writing, he'd do so again.
As cool as Ra's is, I'd write him out as none of his desires to make Az his heir over wayne have been reflected in a single appearance outside of this book. All continuing them would do is reinforce that 'az is batsy's stand in' complex.
On a random note: Az would make a great target for the DEO, or a nifty short termer in the Suicide Squad.