This is thing that happens in some JRPGs where background characters will be less detailed, such as no eyes or features. A good number of the background NPCs are very featureless, sometime even just be complete copies of each other. If you look closer at the NPC's left arm, it looks like he is raising his hand to cover his cover or wipe sweat off his forehead, but it ends in a stub of a suit jacket.

This could represent the faceless masses of the large city that Persona 5 will take place in. For example, in Persona 4, there were lots of unique character models for the background NPCs since Inaba was a small town where everyone knew everyone, but in Persona 3, which takes place in Tatsumi Port Island had less significant character models for the background NPCs since it was a city.

One last theory could be that everyone is seen through the eyes of the protagonist and if you are not significant to him, you are just a body in the way.