This man is one of the people that Robert passed by one on of his walks throughout the city.
He appears in Sandman # 51, on page 11, in panel 6.
In the published comic, this character is little more than a silhouette. Max took this character and gave him a life of his own. He made this character seem like an old man with the intense line work on his face. The details and expression on his face make him seem very serious. I wonder if Max gave this character a back story while bringing him to life.