He's a serial killer who cuts himself with the same knife (his weapon of choice) used to kill his victims. His body is covered in tally marks.
He appeared in Batman Begins; Crane was justifying on the stand why Zsasz should be in Arkham. He later appeared during the inmate escape.
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So again. Not a supervillain.
I'd say he's more in that gray area. I wouldn't say he's a run of the mill criminal, but he's normally seen damn near naked as his "costume." If you read his appearances in Knightfall & the first couple issues of Batman: Shadow of the Bat, you'll see he's more then 'just a criminal,' so its not too far to squeeze him into the Suicide Squad realm.
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Totally not blond enough.
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