Hi Sheena,
These challenges your dog is experiencing are not unique, and can certainly be overcome with time and patience. Your most obvious and useful tool will be the lead, then. Use on-lead obedience training to build her confidence and to foster a trusting relationship with her. You will need to be a bit more vigilant and observant on your walks with your dog, looking out for things and circumstances that frighten her so you can either circumvent the situation, or help her cope with it more easily. For example, if you are walking her and you see an elderly man approaching with a cane or staff ahead, take your dog off the path, have her sit and "wait," while offering treats or praise until the man passes by. This will help your dog to understand 1) what it is you want her to do in these situations, and 2) that the man is no threat. If the man slows to chat during this exercise, politely explain that your dog is fearful of strangers and ask him to please move on. Try to limit her exposure to overwhelming stimuli for several months, at least, only gradually adding new situations to her training program. For instance, as Vegas Girl suggested, avoid crowded parks for now, and just walk her in times and places that are less populated. When she masters the approach of one or two people at a time on the path, you can try walking her past a small group-- maybe on the opposite side of the street in front of a church just before services begin-- she can see there is a group of people a ways off, but not so close as to want to pet her, or even approach. It may take a year or two before you can walk her through a park when there is a ball game or a party going on, but it will happen. (I've already been there, done that!)
And just to give you an example to hope by, here's a story of my personal experience: When my dog, who is now five years old, was just a young pup, I took her for a walk down a popular, but not crowded bike path, not realizing that a special 5K run race was underway. On our way back home, the runners caught up to us, and the street became crowded with supporters cheering the runners. Someone even had a bullhorn to announce finishing times. As we became closer and closer to the finish line, my poor pup became more and more anxious, finally just laying down on the curb and refusing to get up. Her behavior looked so odd that people actually wandered over to ask if she was all right! It took me the better part of an hour to coax her one block! I finally had to pick her up and carry her past the crowd until we turned the corner on our home street. But now, four years later, I routinely walk her through the park while there are soccer games, basketball games, and birthday parties in progress-- all at once. I still have to watch her body language very closely so I can intervene, and I have to be very aware of the clues my own posture gives off (it is imperative that I project calm and confidence), but she does very well these days!
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