The Tick (television)/WMG

Batmanuel, the mayor of Gotham City, and Richard Alpert are all the same person.
Richard has often left the island on important Others-related business and may have posed as mayor of Gotham for a time in order to obtain new contacts, power, and money. After Batman decides Gotham doesn't need him, Richard dresses up as his own bizarre parody to try and help out before eventually giving up and returning to the island.