The problem is they really never bothered to build any of the other characters in the town. Really it's only the Governor, Milton, and Martinez (who really wasn't that important until recent episodes).
Other then them, who else could it be? Random black dude (does he even have a name?), that chick with the bow (she's dead right)... uh well that's the only two characters I remember even getting any airtime. It really wouldn't make sense unless it's Milton. I guess there is a slight possibility of it being Martinez, but why exactly would be do it, him lighting the walkers doesn't make any sense.
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