Actually, it is a painting.
It is Emmett Kelly, a very famous clown.
http://famousclowns.org/famous-clowns/emmett-kelly-sr-biography-world-famous-tramp-clown/
Ah ...... The good old days.... This photo is of the old bridge crossing I-75 over the Saginaw River in Saginaw, Mi.
I remember one time the bridge opened for a holiday weekend (don't remember which).... The backup was almost to Flint.