I think it's a guy that Lee owed money to before the walkers. Lee decided to get money from a loan shark, but hatched a brilliant plot. He murdered the senator coming to repay the loanshark for his own debts, using taxpayer money of course, and then the loan shark so he could go to jail and not have to pay up. The man he owed money to survived the apocalypse and decided to mess with Lee using the radio, and when he realized that Lee still owed him money he decided to kidnap Clem and hold her ransom for the $20 Lee owed the guy from losing the bet on the big football game. The twist comes when the man he lost money to is revealed to be Larry's brother.
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