First of all, when they talk about Crawford, they're not really talking about Crawford the city, which is a long ways away from Savannah. They're talking about an area of Savannah itself. So it didn't ever have a "good" mayor. It was just a section of Savannah that was taken over by Oberman and the people who followed him.
But yes, I think that zombie is Oberman and I think he hung himself. I imagine that when the town got overrun, Oberman and whoever else survived made a last stand in the school, and then eventually the armory (which is why there isn't any ammunition left). Then, when it was clear that there was no way they could win, after everyone else got killed or turned, Oberman went to the top and hung himself.
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