I would guess that the NFL is wary of long suspensions without a guilty verdict. I really see this as more if a failure on the Ravens' organization. They have more latitude in these matters since he is their player.
Player conduct is the option for Goodell to levy discipline apart from the legal system and he has done so many times.
The failure is on Ray Rice alone, period.
The franchise can (and most likely) should have done something, anything, about this prior to meeting at the league offices. The presser w/ Rice's fiancee was as bad as possible. John Harbaugh's comments on this are a trainwreck, he comes off as a disaster on the leadership level of the team.
From the team press conf, to Harbaugh to Goodell, it's embarrasing for the league.