I personally feel that the photo has sympathy for the man depicted.
I do not have the historical background around that picture, so I don't have a strong opinion because maybe he just called the cops afterwards. If someone knows, please bring that information to the discussion, and make some argument as to what it does to the picture.
I agree with sympathy; I think it shows. I've been told by family members that deaths such as this were pretty common in those times. Not unusual at all to find someone near a road or railroad having died from exposure, malnutrition or any of the various maladies. People took at as one of the unfortunate realities of the era.