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well, the joker has never really had the opportunity to control a government organisation because that's not the kind of villain he is. he mightn't know how to control the planet, but he knows better than anyone else how to bring it tumbling to the ground. after no man's land he fucking hijacked a helicopter and diverted to qurac, where he joined the government and took the country to war against neighbouring sovereignties. in new york as qurac's ambassador, he then threatens to essentially nuke (or neutron or ion or positron or whatever bomb) the shit out of manhattan and almost cripples the united nations. boom.
okay, yeah, almost. but still. the joker got there. also, one time, in emperor joker, he steals mr. mxyzptlk's power and completely changes reality. i'd call remaking existence in your own twisted image pretty akin to controlling the planet. bonus points: he eats the populace of china. literally.
also, when luthor was president, he had the entire country declare war on the joker.
that says something for how dangerous this man is. i know osborn's been on 'most wanted' lists, but has his own country ever declared war on him?
also in salvation run joker was one of two leaders (the other obviously being luthor) of the divided villain factions stranded on salvation and basically would have gained control of that planet had the parademons not invaded so, that also sort of counts as controlling a planet.
i dunno, i guess, as much as you don't want to just hand it to the joker, you also can't discount him on the actual 'if they engaged in combat' side. not necessarily physical combat - his fighting capability varies too dramatically from writer to writer to fairly say if he can or can't fight; he might just get lucky sometimes because he's all over the shop - but just as swiftly as norman could assemble a cohesive power base, the joker will be planting explosives in its basement.
at the end of the day, people like the joker 'coz he's the joker. and he's the joker because he's the best at what he does.
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