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And, pure speculation obviously, but I think the Crow Masked man was/is Farrells boss.....the tall skinny dark haired detective. Same build...with his actions and mannerisms in the de-briefing and him being on scene afterwards....just a hunch but I think he's heavily involved.
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I think you have something there. The use of police issued rubber shotgun shells for one. 2nd, the reason for the rubber pellets, as a possible warning to Ray, who was following a lead on Vaughns characters information without informing his superiors. Meaning, they still need Ray, but didnt want to kill him, which would have brought a shitstorm of attention on the case. I can see it being that Boss for sure.