Boy, some pretty thin theories above here ^^^.
It's possible the guy actually knew Chief Willoughby, maybe served with him in, say, the Marines. The Chief could have met his Aussie/NZ wife in one of the Commonwealth countries back when, served with Bad Boy (didn't catch his name) & then retired to become a cop in his old home town. Bad Boy read about his suicide & the billboard connection & came to push some civilians around like in the battle zone.
I agree with one comment above, that Bad Boy probably raped someone in one of the "classified" countries in which he fought. Some of these Special Ops guys actually do that to intimidate those who sympathize with the "enemy." Not officially sanctioned, of course.
I looked at IMDB and Bad Boy's name might've been Tony.
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