HIS HONOUR: By a summons filed 3 July 2024, the State of New South Wales (the plaintiff) commenced proceedings against Matthew Armstrong (the defendant), seeking certain preliminary orders and, by way of final orders, an Extended Supervision Order (ESO) for a period of two years from the date of the order, subject to proposed conditions, pursuant to ss 5B, 9(1)(a) and 11 of the Crimes (High Risk Offenders) Act 2006 (NSW) (the Act). An ancillary order was also sought, limiting access to the Court file.
At the time the summons was filed, the defendant was residing in the community, subject to an ESO made by R A Hulme J on 14 October 2015: State of New South Wales v Armstrong [2015] NSWSC 1510. Eleven days later, on 14 July 2024, the defendant was arrested and charged with breaches of the ESO. He was refused bail and on 29 August 2024 he was sentenced to a term of imprisonment for 10 months that will expire on 13 May 2025, with a non-parole period of three months, that expired on 13 October 2024.
The application for preliminary orders came before me for hearing on 18 September 2024. Orders were made on 19 September 2024: State of New South Wales v Armstrong [2024] NSWSC 1182 (the preliminary judgment). I made orders that two forensic experts assess the defendant pursuant to s 7(4) of the Act and that the defendant attend their examinations.
The plaintiff did not press a prayer in the summons for an Interim Supervision Order (ISO) for a period of 28 days from 25 September 2024, subject to the proposed conditions, pursuant to ss 10A and 10C(1) of the Act, the reason being that, although the defendant was to be released from prison to statutory parole on 13 October 2024, he would automatically be subject to an existing ESO that would not expire until 1 January 2025. His obligations under the parole order would be suspended during the currency of the ESO: s 160A of the Crimes (Administration of Sentences) Act 1999 (NSW). From 1 January 2025, he would be subject to conditions of parole until the expiry of the head sentence, which is to occur on 13 May 2025. That being so, the plaintiff accepted that it could not satisfy the Court of a necessary prerequisite to the making of an ISO that is required by s 10A(a) of the Act, namely, that it "appears to the Court" that the defendant's "current custody or supervision will expire" before the determination of the plaintiff's claim for final relief. The plaintiff requests that the prayer be dismissed, which will be done.
The hearing of the plaintiff's application for an ESO occurred on 11 December 2024. The Court was informed that the anticipated sequence of events had occurred, so that at the time of the hearing the defendant was residing in the community, subject to his then-current ESO.
[3]
The statutory prerequisites for the making of an ESO
The plaintiff submits, and the defendant does not dispute, that the statutory prerequisites as to the status of the defendant for the making of an ESO are satisfied. I am independently satisfied that is so. At the time of the application, he was an offender who served a sentence of imprisonment for a serious offence as defined in ss 4(1) and 5(1)(a)(i) of the Act, being a serious sex offence against a child, punishable by imprisonment for 7 years or more [1] within the meaning of s 5I of the Act, namely, at the time of the application he was serving a custodial sentence for a breach of a supervision order (ss 5B(a), (b) and (c), 5I and 12 of the Act) and the application was made in accordance with s 5I of the Act.
The remaining issue for determination as to whether an ESO should be made is s 5B(d), which is in the following terms:
"5B Making of extended supervision orders - unacceptable risk
The Supreme Court may make an order for the supervision in the community of a person (an extended supervision order) if -
…
(d) the Supreme Court is satisfied to a high degree of probability that the offender poses an unacceptable risk of committing another serious offence if not kept under supervision under the order."
The defendant submits that the Court would not be so satisfied, and therefore that the prayer for an ESO should be refused.
The reference in s 5B(d) of the Act to "a high degree of probability that the offender poses an unacceptable risk" is qualified by s 5D of the Act.
"5D Determination of risk
For the purposes of this Part, the Supreme Court is not required to determine that the risk of an offender committing a serious offence is more likely than not in order to determine that there is an unacceptable risk of the person committing such an offence."
I note that, pursuant to ss 5B and 9(1) of the Act, the power to make an ESO is discretionary; the Court may make an order for an ESO if the prerequisites in that section are satisfied.
Sections 3 and 9 of the Act stipulate its objects and the paramount consideration to be taken into account when determining an application for an ESO, respectively. They are as follows:
"3 Objects of Act
(1) The primary object of this Act is to provide for the extended supervision and continuing detention of high risk sex offenders and high risk violent offenders so as to ensure the safety and protection of the community.
(2) Another object of this Act is to encourage high risk sex offenders and high risk violent offenders to undertake rehabilitation.
…
9 Determination of application for extended supervision order
(1) The Supreme Court may determine an application for an extended supervision order -
(a) by making an extended supervision order, or
(b) by dismissing the application.
(2) In determining whether or not to make an extended supervision order, the safety of the community must be the paramount consideration of the Supreme Court.
(2A) (Repealed)
(3) In determining whether or not to make an extended supervision order, the Supreme Court must also have regard to the following matters in addition to any other matter it considers relevant -
(a) (Repealed)
(b) the reports received from the persons appointed under section 7(4) to conduct examinations of the offender, and the level of the offender's participation in any such examination,
(c) the results of any other assessment prepared by a qualified psychiatrist, registered psychologist or registered medical practitioner as to the likelihood of the offender committing a further serious offence, the willingness of the offender to participate in any such assessment, and the level of the offender's participation in any such assessment,
(d) the results of any statistical or other assessment as to the likelihood of persons with histories and characteristics similar to those of the offender committing a further serious offence,
(d1) any report prepared by Corrective Services NSW as to the extent to which the offender can reasonably and practicably be managed in the community,
(e) any treatment or rehabilitation programs in which the offender has had an opportunity to participate, the willingness of the offender to participate in any such programs, and the level of the offender's participation in any such programs,
(e1) options (if any) available if the offender is kept in custody or is in the community (whether or not under supervision) that might reduce the likelihood of the offender re-offending over time,
(e2) the likelihood that the offender will comply with the obligations of an extended supervision order,
(f) without limiting paragraph (e2), the level of the offender's compliance with any obligations to which he or she is or has been subject while on release on parole or while subject to an earlier extended supervision order,
(g) the level of the offender's compliance with any obligations to which he or she is or has been subject under the Child Protection (Offenders Registration) Act 2000 or the Child Protection (Offenders Prohibition Orders) Act 2004,
(h) the offender's criminal history (including prior convictions and findings of guilt in respect of offences committed in New South Wales or elsewhere), and any pattern of offending behaviour disclosed by that history,
(h1) the views of the sentencing court at the time the sentence of imprisonment was imposed on the offender,
(i) any other information that is available as to the likelihood that the offender will commit a further serious offence.
(4) In determining whether or not to make an extended supervision order in respect of an offender, the Supreme Court is not to consider any intention of the offender to leave New South Wales (whether permanently or temporarily)."
Pursuant to s 6(3) of the Act, an application for an ESO must be supported by documentation that addresses each of the matters referred to in s 9(3) of the Act (s 6(3)(a) of the Act), and includes a report prepared by a qualified psychiatrist, registered psychologist or registered medical practitioner that assesses the likelihood of the offender committing a serious offence (s 6(3)(b) of the Act).
[4]
The defendant's background, his history of criminal offending, his progress under the ESO imposed in 2015 and his mental health status
In the preliminary judgment, I canvassed the material tendered into evidence by the plaintiff as to the defendant's background, his criminal history, his performance when he was subject to the earlier ESO, and forensic material that was relied on by the plaintiff at that time. The same material is relied on by the plaintiff in this (final) hearing and is relevant to some of the matters identified in s 9(3) above. In the interests of avoiding unnecessary duplication, I repeat my observations and findings concerning that material from the preliminary judgment, to which I adhere.
"Background to the application
The defendant's personal circumstances
5 The defendant is 33 years old. [2] He was born in Sydney and has one sibling, an older brother. Aspects of the defendant's background were summarised in a risk assessment report dated 3 October 2023 by Holly Cieplucha, who is a senior psychologist with the Serious Offenders Assessment Unit of Corrective Services NSW:
'[The defendant's] formative years were reportedly characterised by significant grief, loss, neglect and instability … his parents separated when he was around the age of five. He remained in the care of his mother, having little contact with his father until he was in his early twenties. [The defendant's] grandmother passed away when he was around the age of seven and his mother when he was around the age of eleven, resulting in he and his brother being taken into foster care. [The defendant] reportedly displayed a range of behavioural problems, including increased impulsivity, aggression and poor emotional regulation and acknowledged being a 'difficult child to control, as he seldom followed instructions and was resistant to authority, structure and routine' [Psychologist Report, R Nasr, Clinical and Forensic Psychologist, LSC Psychology, 10/09/2013]. As such, he was repeatedly shifted from carer to carer and it is understood that [the defendant] and his brother were placed in at least six different foster homes, varying in duration from six months to two years, before he turned 16. [The defendant] has maintained contact with several of his former foster parents including his foster mother in Queensland with whom he resided for over 12 months shortly after his mother's passing and a former foster father ... It is understood that [he] was temporarily placed in the care of his biological father around the age of 13, however this ended after approximately six months because of his father's neglect. From around the age of 16 years, [the defendant] experienced housing instability, living either with relatives or in youth hostels.
[The defendant] experienced significant disruption during his school years due to frequent movement between caregivers in childhood and early adolescence. He experienced learning and behavioural difficulties and struggled academically. [He] had difficulty forming lasting friendships and was bullied regularly at school. He was suspended on multiple occasions for fighting. [He] left school after completing Year 11.
[The defendant] has limited employment history, having held only short-term jobs since leaving school. His longest role appears to have been in a bakery where he worked for approximately three months when he was around the age of 16 years … his last employment [was] in a Meatworks in Queensland in 2007. He [was] approved for the Disability Support Pension in 2021.'
The defendant's criminal offending
6 The defendant's first entry in a criminal record was in Queensland in February 2009, for a minor property matter committed when he was 18, for which a conviction was not recorded.
7 In Charleville District Court, on 25 March 2011, he was convicted of three counts of indecent treatment of a child under 16, namely a child under 12, and an attempted indecent treatment of a child under 16, namely a child under 12. [3] The offences were committed between 26 October 2007 and 12 March 2010, when the defendant was aged between 16 and 18. The first count involved masturbating a boy aged 8, the second involved the defendant showing pornographic magazines to the same boy when he was aged 10, and the third and fourth counts involved him requesting the same boy to send him a picture of himself naked and, minutes later, sending the boy a pornographic image. He was sentenced to a period of imprisonment which was the time already served; 376 days since 15 March 2010, and to probation for a period of 2 years.
8 In 2011, the defendant was made subject to obligations under the Child Protection (Offenders Registration) Act 2000 (NSW) (the CPOR Act) and placed on the NSW Child Protection Register (which will continue until 2035).
9 On 17 November 2011, the defendant committed three counts of failing to comply with his probation order reporting obligations, for which he was fined $1,000 in Brisbane Magistrates Court on 28 February 2012. He had failed to notify police that he had obtained a new mobile phone number and Facebook profile.
10 On 29 August 2012, he was convicted and fined for a further breach of his probation order reporting obligations, committed between 1 April and 15 July 2012.
11 On 24 October 2013, the defendant pleaded guilty in Lismore District Court to a count of indecent assault of a child under 10 (committed on 3 October 2009, when he was aged 18). The offence involved him sexually touching a five-year-old girl while he was staying overnight with her extended family in their home. The complainant reported the crime in 2012. The defendant was sentenced to imprisonment for 3 years, backdated to commence on 28 August 2012 and thus expire on 27 August 2015, with a non-parole period of 18 months to expire on 27 February 2014.
12 On 27 February 2014, the defendant was released to parole and commenced residing at Nunyara Community Offender Support Program (Nunyara COSP). He was returned to custody on 20 May 2014, when he was charged with failing to comply with his reporting obligations under the CPOR Act. Police inspected the defendant's phone, which he had had in his possession for two months but had not disclosed in accordance with his reporting obligations. He had nine different social networking applications on which he had engaged in online chats with male and female children aged under 18 in various parts of the world, including a Filipino female aged 9 who he texted in terms that suggested he was grooming her. The phone contained photos of naked females of uncertain age (over or under 18) and the defendant admitted sending nude photos of himself to males whom he claimed were over 18. Searches on the phone included the search terms concerning children engaging in sexual acts. On 9 July 2014, he was sentenced to 11 months' imprisonment with a non-parole period of 5 months, backdated to commence on 20 May 2014. He was not released to parole. A Child Protection Prohibition Order (Prohibition Order) was made, pursuant to the Child Protection (Offenders Prohibition Orders) Act 2004 (NSW) (CPOP Act) for a period of three years, which expired on 9 July 2017.
13 The defendant's parole for the sentence imposed on 24 October 2013 was revoked, and he was required to serve the balance of his sentence, which expired on 27 August 2015. In July 2015, the plaintiff sought a continuing detention order (CDO) and a subsequent ESO. An interim detention order (IDO) was made on 10 August 2015, to commence on 28 August 2015. On 14 October 2015, R A Hulme J made a CDO for 12 months to date from that date, and to be followed by an ESO for a period of 3 years.
The defendant's progress under the ESO
14 On 13 October 2016, the defendant was released from prison, subject to the ESO. Since then, he has repeatedly been convicted of breaches of its conditions, resulting in his re-entering custody six times since its commencement and the subsequent suspension of the ESO each time, pursuant to s 10(2) of the Act.
15 On 21 March 2017, police searched the defendant's phone and found that he had installed a networking application and that his Google account had been accessed from devices other than his registered phone. His bank account also revealed two payments to a site called 'Chatses.com', which the defendant denied knowing anything about. He also admitted to joining the networking service 'Grindr'. He was charged with, and subsequently convicted of, two counts of fail to comply with conditions of the ESO and sentenced to concurrent terms of 6 months and 22 days imprisonment, to date from 31 March 2017.
16 On 13 December 2017, a search of the defendant's phone revealed contact by text with a former cellmate and with that cellmate's ex-partner, who were the parents of a seven-month-old baby boy, and texts to another person hoping to talk via a messaging app. The phone also had a file-sharing app and the app 'Gumtree' installed. The defendant was arrested, charged and convicted. On 26 April 2018, he was sentenced to an aggregate sentence of 2 years imprisonment commencing 13 December 2017, with a non-parole period of 18 months.
17 On 12 June 2019, the defendant was released and issued with a direction not to use internet chat rooms or dating sites. A search of his phone on 20 September 2019 revealed that there had been internet searches for, and subsequently deleted repeated downloads of, five social networking sites which had the ability to use webcam interaction and/or image sharing. A storage platform had also been downloaded. A record of 247 deleted images was also found, which the defendant claimed were mostly nude images of himself that he had sent on social media apps. He said that he believed the people he had been chatting with were aged 18. A record of four deleted video files was also found, which the defendant said were of him, or the person he was chatting with, naked. On 20 September 2019, the defendant was charged with further breaches of his ESO. Police also located search terms and files with names that were suggestive of sexual activity, including intercourse, with children. Two apps that can operate to perform deletions of internet history had been installed on his phone. The defendant said he used one of them to search for images of scantily clad men. He was charged with three counts of breach of his ESO. On 25 September 2019, he was separately sentenced for each count, receiving an overall sentence of 2 years and 9 months, with a non-parole period of 1 year 9 months, commencing on the date of sentence, so that his earliest parole date was 19 June 2021.
18 On 18 March 2022, at which time the defendant was residing in a boarding house, his phone was searched, which led to him being charged with 15 breaches of his ESO. He admitted to the use of a particular chatroom app, which involved communications with over a hundred people in the previous 16 days. Nine other social networking apps, one with a name suggesting its purpose was to connect with teens, were identified. He had also downloaded private browsers which did not record search histories. Between 19 February 2022 and 11 March 2022, he downloaded and then uninstalled one of these browsers nine times. A large number of incoming and outgoing phone calls, totalling 180, had been deleted. For twelve of the counts, the defendant was sentenced to an aggregate term of 6 months imprisonment to date from 13 June 2022. For the remaining three counts, he was placed on a Community Corrections Order (CCO) for 18 months, commencing on 13 July 2022 and expiring on 12 January 2024. These breaches also led to breaches of his parole for the sentences imposed in respect of his previous ESO breaches.
19 The defendant was released at the expiry of his sentence on 12 December 2022. On 20 December 2022, he was issued with a direction not to access any form of social media. On 30 September 2023, the defendant's phone was searched and a social networking (roleplay) app was found to have been installed, with two user profiles created. A review of chats on the app revealed that the defendant had allegedly been engaged in several chats with boys who purported to be 16 and 17 years old. The defendant had asked each of these profiles if they wanted to be his boyfriend and had engaged in 'sexualised roleplay conversation'. He was charged with three counts of failing to comply with his ESO. He pleaded guilty to one, with the other two taken into account on a Form 1. He was sentenced on 21 February 2024 to 12 months imprisonment, backdated to commence on 6 October 2023, with a non-parole period of 6 months, ending on 5 April 2024, when he was released to parole.
20 On 14 July 2024, the defendant was arrested and refused bail for two further alleged breaches, for making further text message contact with two pizza delivery boys (with whom he was hoping to meet up), one aged 15 and one aged 17, who had delivered pizzas to him. These are the offences for which he is presently serving a custodial sentence, for which he will be eligible for parole on 13 October 2024.
The defendant's mental health and mental condition
21 The parties have agreed to the following summary concerning the defendant's mental health and mental condition. He has been treated with anti-anxiety medication since 2012, and in 2014 was described as having mild depressive symptoms. In 2015, he was diagnosed with agoraphobia, panic disorder and avoidant personality disorder.
22 During the course of the ESO, the defendant has struggled with anxiety and depression, with repeated presentations to hospital emergency departments with deteriorating mental health. He has reported both suicidal ideation and sometimes thoughts of harming others.
23 While in custody in 2018, the defendant reported experiencing auditory hallucinations for the first time. He received depot antipsychotic medication from July 2021. Following repeated presentations to the mental health unit at the Royal Prince Alfred Hospital in early 2022, his mental health was summarised as being a consequence of his 'attention seeking / [dependent] personality'.
24 However, in August 2023, following an inpatient admission to Cumberland Hospital with thoughts of harming others (including a roommate) and auditory hallucinations, the defendant was diagnosed as having chronic schizophrenia.
25 The defendant reported that the anti-psychotic depot medication he had been prescribed had an antilibidinal effect. In September 2023, he told Ms Cieplucha that he 'had not been compliant' in taking his medication 'for a couple of months', and Ms Cieplucha noted that was possibly linked to a reported increase in sexual preoccupation that she observed. Non-compliance with his medication was not reported by Dr Kerri Eagle, forensic psychiatrist, when she assessed him on his discharge from the Treatment and Rehabilitation Clinic (TRC) in June 2024.
26 Dr Eagle expressed the following opinions:
(a) That the defendant's diagnostic formulation was 'Schizophrenia, Borderline personality traits/disorder, paedophilia, non-exclusive type; substance use disorder, in remission under supervision'.
(b) That the defendant was at 'risk of self harm/suicide particularly in the context of deterioration in mood, mental state and/or changes in treatment.'
(c) That the defendant have his mental health treatment reviewed by Community Mental Health Services.
(d) That the defendant did not require antilibidinal medication presently, and could 'be referred back to the TRC for further consideration of biological treatment options for problem sexual thoughts, urges or behaviours if required in future'.
27 The defendant was assessed by the Emergency Department at Prince of Wales Hospital, on 15 July 2024, after being taken into custody on 14 July 2024. He reported that he had not taken his medication for two days and was hearing voices in his head stating that he should kill himself. He was assessed by Dr Helena Angel-Scott, who concluded, after observation, that he did not appear to be a risk of harm to himself, and that his distress was as a result of his arrest and return to custody. Dr Angel-Scott noted that the defendant:
'… remains at chronically elevated potential for serious harms relating to his risk of harm to others (most significantly), from misadventure and to himself.'
28 On 25 July 2024, the defendant was reviewed by a mental health nurse in custody. He reported that he heard voices 'all the time', 'telling him to harm others' but denied that the voices told him to harm himself. He denied any thoughts, plans or intent to harm himself.
The defendant's sex offending treatment
29 In December 2011, the defendant completed a sex offender program conducted by Queensland Corrective Services, despite failing to attend multiple sessions. He was directed to commence the Medium Intensity Sexual Offender Program in 2012 but failed to attend and was subsequently excluded from it.
30 While in custody subject to the CDO in NSW, the defendant completed the High Intensity Sex Offender Program (HISOP), then known as the Custody Based Intensive Treatment (CUBIT) program.
31 The defendant has attended Forensic Psychology Services (FPS) maintenance sessions while in the community since 25 October 2016, which were resumed upon each release from custody. The frequency of his engagement was increased in July 2023, following concerns about increasing sexual preoccupation. His engagement was described as 'superficial', and he was reported to be 'hostile and aggressive and at times threatening' during sessions.
32 The defendant has expressed willingness to be referred to the Community Forensic Mental Health Service (CFMHS) and the TRC.
…
A forensic psychologist report
41 In a report dated 10 September 2013, Rima Nasr, who is a clinical and forensic psychologist, assessed the defendant's intellectual capacity:
'Overall, [the defendant] presents with intellectual capacities that fall within the Borderline range. He performs better than 4% of his normative age group. This is indicative of a low but not impaired overall skill level, such that [the defendant] is a man of limited cognitive resources, although he does not have an intellectual disability.'
Forensic psychiatric reports
42 The tendered material includes two forensic psychiatric reports by Dr Samson Roberts and Dr Andrew Ellis that were prepared for the ESO hearing in 2015, and an initial assessment and discharge summary by Dr Eagle prepared earlier this year in relation to an admission of the defendant to the CFMHS TRC between 6 May and 26 June 2024.
43 In a report dated 7 September 2015, Dr Roberts noted the following, apparently referring to Ms Nasr's report, which he was provided:
'Formal psychometric assessment identified his intellectual performance as placing him in the borderline range and identified specific deficits in executive functioning. His presentation at interview, specifically with respect to his use of language, does not create the impression of a person suffering the level of impairment that has been identified on formal assessment. Indeed, his presentation at interview could reasonably be presumed to reflect a person capable of learning, planning and participating in a mainstream therapeutic program and does not reveal his deficits.'
44 As to his diagnosis, Dr Roberts nevertheless accepted the earlier diagnosis of the defendant being 'cognitively impaired'. He diagnosed the defendant as having an agoraphobia and panic disorder and said that 'his offending behaviour supports the impression of Paedophilia'. As to his level of risk, Dr Roberts noted that the defendant had previously been assessed as being in the 'low to moderate' range of sexual reoffending, and commented:
'In the absence of a therapeutic program specifically tailored to [the defendant's] individual needs or the implementation of a pharmacological approach, ideally antilibidinal therapy in conjunction with a psychological treatment approach, it is not expected that his risk will change in the foreseeable future.'
45 Dr Ellis, in his report dated 15 September 2015, diagnosed the defendant in these terms:
'The diagnosis of primary concern is a paraphilic disorder (Paedophilia). He would meet criteria for a paedophilic disorder, attracted to boys and girls. … Paedophilia is a chronic relapsing condition.
… There is no evidence of conduct disorder in his youth, and his criminal behaviour is exclusive for sexual offences or breaches of justice orders related to sexual offences. He does not present with antisocial personality disorder, but does present with avoidant personality traits which appear to be consistently present across his adult life. He describes somatic symptoms of anxiety in response to social situations, crowds and memories of his deceased relatives. These symptoms have been present since childhood. These symptoms lead to avoidance behaviour and decreased adaptive function. They likely relate to his lack of mature intimate relationships, rather than constituting a separate anxiety disorder. He would meet criteria for a diagnosis of avoidant personality disorder. This is consistent with the history of significant loss and neglect in his developmental years.
…
His presentation, previous testing and interview do not indicate any intellectual or cognitive disability that would rise to the level of a clinical disorder.'
46 As to the defendant's risk of recidivism, Dr Ellis said:
'In considering actuarial, structured professional and clinical parameters in the absence of any treatment or supervision, [the defendant] would fall into a group of persons with a risk for serious sexual offending that is statistically high in frequency and of a type with serious consequence, and greater than a theoretical average offender. Specific treatment and supervision would likely reduce this risk.'
47 Dr Eagle determined the diagnostic formulation on the defendant's discharge from the TRC on 26 June 2024 to be:
'Schizophrenia
Borderline personality traits/disorder
Paedophilia, non-exclusive type
Substance use disorder, in remission under supervision'
48 She identified his risk needs to be:
'Ongoing risk of sexual harm to others in the context of reduced supports, deterioration in mental state, reduced monitoring and/or change in treatment
Risk of self harm/suicide particularly in the context of deterioration in mood, mental state and/or changes in treatment'
Risk Assessment Report
49 In her risk assessment report dated 3 October 2023, Ms Cieplucha opined that the defendant fell into the 'high risk' range for sexual reoffending relative to other adult male sex offenders. She noted:
'He has been convicted of repeat sexual offences, has repeatedly failed to comply with conditions imposed on him under legal orders (CPR, ESO) and has failed to engage effectively in intervention to address risk issues. Despite being subject to an Extended Supervision Order since 2016, he continues to present with a high density of criminogenic needs. Based on his history and outstanding needs, it is possible that he could commit a future 'serious sexual offence' as defined in [the Act].'"
For this (final) hearing, the plaintiff additionally relies on two forensic reports that have been produced pursuant to the preliminary orders. The reports are by Dr Anna Farrar, a forensic psychiatrist, and Dr Amanda White, a forensic psychologist. Both reports are dated 14 November 2024. Both authors obtained and related an account of the defendant's background and his criminal, custodial and treatment history, which is unnecessary to further canvass for the purposes of this judgment.
Dr Farrar diagnosed the defendant as follows:
"[The defendant] had features consistent with a diagnosis of Borderline Personality Disorder, including recurrent suicidal behaviour (reported self-harm, suicidal ideation and previous suicide attempts), relationship instability, emotional instability, inappropriate anger, impulsivity and paranoia and dissociation … [The defendant] also had features of Antisocial Personality Disorder including blaming others and failure to take responsibility for his actions (including blaming his ESO for being unable to resume TAFE and limited participation in CUBIT program) with avoidant personality traits (Avoidant Personality Disorder diagnosed by Dr Ellis in 2015 and noted to have avoidance based coping according to CUBIT Treatment Report of Tamara Sweller dated 29 September 2019). He had undergone psychological treatment for personality disorder, including within Cognitive Behavioural Therapy (CBT) and Acceptance Commitment Therapy (ACT) frameworks (NDIS [4] Review Report of Dr Le dated 1 October 2021), but never Dialectical Behavioural Therapy (DBT), the primary psychological treatment for Borderline Personality Disorder.
[The defendant] had a diagnosis of Paedophilic Disorder, Nonexclusive type. Although he denied sexual interest in children during assessment, he had a history of child sexual offending (charges and convictions for contact offences with children), his victims were both female and male children and he was not considered to be a reliable historian around his psychosexual history as he had over the years provided differing accounts of his sexuality, sexual arousal and relationship history and he declined to provide an account of his sexual offending (although he indicated that he had pleaded guilty and accepted the facts in the matters)."
Dr Farrar declined to diagnose the defendant with schizophrenia:
"In my opinion, [the defendant's] presentation and the collateral information were not consistent with diagnosis of Schizophrenia. Although on assessment on 24 October 2024, [the defendant] reported experiencing auditory hallucinations in the form of four voices, two good and two bad, including two bad voices named Lucifer and Cyberman and two bad voices named Alex and Brendan, and that he used to see purple dragons, he did not present with objective evidence of psychosis, including disorder of thought form or delusions and he did not present as distracted (or with any deficits to his attention and concentration) or blunted in affect. His description of his auditory and visual hallucinations had the quality of pseudo-hallucinations given his clear and intense description and lack of changes in his affect when describing the hallucinations in combination with his Borderline Personality Disorder diagnosis."
Dr Farrar assessed the defendant's risk of sexual re-offending by utilising an assessment tool known as the Risk for Sexual Violence Protocol (the RSVP). She noted four past risk assessments, including two by Ms Cieplucha; the one noted earlier on 3 October 2023 in which she found that the defendant was in the "high risk" range, and another in a supplementary risk assessment report dated 27 March 2024, in which she maintained that opinion.
Dr Farrar was of the opinion that the defendant's risk of sexual re-offending is "moderate to high". Her reasoning in forming this opinion by reference to the domains that are considered in the RSVP attracts considerable weight, in my view. It is also noteworthy that the degree of risk was not reduced by the high degree of supervision over the defendant by his ESO conditions at the date of the assessment, on 24 October 2024:
"[The defendant] was a 33-year-old single male who was unemployed and in receipt of the Disability Support Pension who was residing in transitional housing in the community with NDIS support.
He had complex needs, due to his long history of offending behaviour (including sexual offending and multiple breaches of supervision orders since 2010), Borderline Personality Disorder and Paedophilic Disorder. He was receiving psychiatric care through his GP and psychological treatment in the community. He was not receiving treatment from a Community Mental Health Service. He had partial insight into his disorders and was accepting treatment. On assessment, he presented with limited insight into his offending behaviour, risks, diagnosis and treatment needs.
[The defendant's] strengths included his ability to maintain relationships with some family members, his acceptance of NDIS support, his engagement in psychological treatment and his desire to engage in pro-social activities (including possible study and age-appropriate romantic relationships).
[The defendant] had problems in most of the domains of the RSVP Risk Assessment. In terms of his Sexual Violence History, [the defendant] had a history of Diversity of Sexual Violence and Psychological Coercion in Sexual Violence. [The defendant] had problems in most of the Psychological Adjustment domains, including Problems with Self-Awareness, Problems with Stress or Coping, Problems Resulting from Childhood, Sexual Deviance (Paedophilic Disorder) possible Major Mental Illness (previous Schizophrenia diagnosis with diagnostic and treatment uncertainty) and Violent and Suicidal Ideation. In the Mental Disorders Domain, [the defendant] had problems with Intimate Relationships, Problems with Non-Intimate Relationships, Problems with Employment and Non-sexual Criminality. In relation to the Social Adjustment Domain, [the defendant] had Problems with Planning, Treatment and Supervision. [The defendant] had reasonable community supports including some family support (primarily his foster mother), NDIS support, ESO support, GP support and psychological support although he did not have permanent accommodation or support from a Community Mental Health Service.
Overall, [the defendant's] risk of sexual re-offending was assessed as moderate to high. This risk assessment occurred in the context of [the defendant's] supervision conditions on 24 October 2024 (including electronic monitoring and assistance with accommodation and professional support) and his risk may be higher without supervision conditions."
Dr Farrar made recommendations for the defendant's on-going treatment. He should be referred to a Community Health Service to review, monitor and prescribe his medication for his Borderline Personality Disorder, which was previously diagnosed as schizophrenia. His risk (including his risk of harm to himself and others) that is associated with his Borderline Personality Disorder should be monitored and he should be referred to Dialectical Behavioural Therapy (DBT), which she described as the primary psychological treatment for a Borderline Personality Disorder. Dr Farrar also recommended that the defendant continue to receive psychological treatment for his Paedophilic Disorder, and that "re-referral to the Treatment Rehabilitation Clinic is considered if [the defendant] consents to trial of anti-libidinal medication".
Dr Farrar was of the opinion that the defendant be subject to an ESO, which would "allow for ongoing treatment, support and restrictions, which could not be achieved by any other means". She did not express a view as to its length.
Pursuant to a recommendation made by me in the preliminary judgment, Dr White undertook a fresh assessment of the defendant's level and characteristics of intellectual functioning. Dr White noted that the defendant's level of intellectual functioning had been tested in 2013, utilising the Wechsler Adult Intelligence Scale - Fourth Edition (WAIS-IV), with a result that he was in the Borderline range. A further assessment in 2014 yielded a result of the defendant functioning in the "Low Average" range. Dr White noted:
"A Supported Independent Living assessment conducted in 2021, based on interview with [the defendant] and support workers, indicated that he is unable to live independently due to multiple behaviours of concern. He was assessed as having low-to-moderate level of independence when completing functional tasks such as managing finances, housekeeping, food preparation and shopping. He reportedly could not complete a cognitive screening test 'due to the significant difficulty he experienced with maintaining concentration throughout which resulted in an incomplete screen.'"
Dr White administered certain sub-tests of the WAIS-IV. She qualified the results, stating:
"[The defendant's] results on measures of performance validity were suboptimal across all measures. Accordingly, results are interpreted with significant caution and are unlikely to reflect his true capacity."
The possible results, and relative population percentiles, were described thus:
"Where appropriate, test results are reported using the following descriptions: Very Superior (98th percentile and above); Superior (91st to 97th percentile); High Average (75th to 90th percentile); Average (25th to 74th percentile); Low Average (9th to 24th percentile); Borderline (2nd to 8th percentile); and Extremely Low (<2nd percentile)."
Some of the sub-test results obtained by Dr White, in short form, were as follows. As to intellectual functioning, the defendant's verbal skills were Low Average. His visual skills performances, including reasoning and problem-solving, were in the Borderline range. As to attention and concentration and information processing, his performance on an immediate basic attention task was Borderline and his working memory was Extremely Low Average. As to new learning and memory, his performances were variable, between Extremely Low to Low Average. The defendant's executive functioning performances varied between Low Average and Extremely Low Average.
Dr White concluded:
"On current assessment, his performances on validity measures were suboptimal and as such results are expected to undermine his true cognitive capacity. At a minimum, his results suggest Low Average intellectual function with a relative weakness in visual skills; consistent with 2013 results. Performances indicate areas of possible difficulty in attention and working memory, with variable processing speed and new learning and memory and executive functions. Given the lack of time [the defendant] has spent in the community, his adaptive skills are likely to be reduced to some extent, although his true level of capacity for same is unclear. With this said, it is evident that [the defendant] does not have an intellectual disability or global cognitive impairment."
As to the defendant's level of risk, Dr White administered the RSVP Version 2 (RSVP-V2) and concluded:
"Based on the RSVP-V2, and current circumstances, [the defendant] presents a High likelihood of committing further sexual violence and requires a High level of effort and intervention to prevent further sexual offending."
Dr White also administered the Static 99-R, which assesses risk based on static factors. It placed the defendant in the "Well Above Average" risk of sexual reoffending. Overall, she concluded he posed a "high" risk of sexually offending and that "there is a risk that the sex offence may be considered a serious offence as defined in the Act". She considered that "options other than an ESO would likely be insufficient to meet his current needs". Alternative options that Dr White considered and dismissed as insufficient without an ESO were a Community Treatment Order, a Child Protection Prohibition Order (a CPPO) and NDIS services. She was of the opinion that the proposed length of time for an ESO of two years was "reasonable".
[5]
Other fresh material relied on by the prosecution
The post-preliminary hearing material tendered into evidence by the plaintiff includes an affidavit by Jessie Slattery-McDonald, who is an employee of Corrective Services NSW, dated 6 December 2024, that was read at the hearing. Ms Slattery-McDonald is a High Risk Offender (HRO) applications and Operational Governance Officer and has responsibility for governance matters arising from the supervision of persons subject to an ESO. In her former capacity as a Departmental Supervising Officer (DSO), she had supervised the defendant between December 2022 and March 2023.
[6]
Material tendered by the defendant
The defendant relied on a letter from his NDIS Specialist Support Coordinator, Stuart Fraser, dated 12 September 2024. In his letter, Mr Fraser referred to the defendant's poor decision-making, and how his NDIS support assists him to make better decisions:
"I have noted during many of my interactions with [the defendant] that he is often distracted during supports for shopping or general social interactions, and that at these times he will not demonstrate appropriate decision-making capabilities with regard to his current circumstances. When supported it has often been the case that [the defendant] needs to be prompted to consider options and not a singular impulse decision. Also, when support is not available, he may tend to be impulsive or become overwhelmed and call for support to make a decision.
[The defendant] has made some progress with his emotional regulation and decision making as he has engaged with his NDIS mental health and mentoring support system that has identified a number of gaps in his development of both social and living skills. These supports continue to work with him towards his NDIS goals, informing and developing his resilience, guiding and reinforcing decisions around acceptable social norms."
The defendant also relied on a letter from an NDIS social worker, Graham Barker, dated 2 December 2024. Mr Barker stated that he has provided "social work services" to the defendant "since 2022" as part of the defendant's NDIS services. He related the difficulties that the defendant has encountered in attempting to join community groups or to access educational agencies since he is required to disclose his offending behaviour and notes his desire to engage in paid sexual services. Mr Barker concluded:
"It would possibly break the cycle of release and reincarnation if [the defendant] could experience both the intimacy needs and participation in a group, both of which he likely experiences whilst incarcerated, in a structured and legally valid way in the community."
The NDIS material is to the effect that its plan of services to the defendant is reviewed annually. It will next be reviewed on 26 June 2025. For the purposes of this application, it is realistic to proceed on the basis that the defendant's current NDIS services will be continued on an ongoing basis.
The defendant tendered case notes, which included a note by the defendant's DSO of a conversation on 15 October 2024 with Mr Barker, who reported that he had been "working with [the defendant] for a number of years and dependant on approval by his manager, Stuart, he will continue to work with him going forward". The note also stated:
"[Mr Barker] suggested that before he lets [the defendant] know about possible housing options that he sends me a list of proposed addresses and we can do our checks before hand that way it doesn't impact [the defendant's] MH which I agreed was a good idea. I sent an SMS with my email and he will compile a list of housing options for [the defendant] shortly. [Mr Barker] spoke about [the defendant] needing to be able to find suitable activities such as walks (with his workers) and cooking to aide him live more independently should he obtain housing and for him to have pro-social activities."
[7]
Submissions by the defendant as to whether the Court should make an ESO
The defendant submitted that, in terms of the test in s 5B(4) of the Act, the Court would not be satisfied to a high degree of probability that the offender poses an unacceptable risk of committing another serious offence if not made subject to an ESO, for the following reasons.
The defendant has a demonstrated track record of not committing a further serious offence in 15 years, that is, since the index offences. The only offences he has committed whilst on an ESO are breaches of the conditions by "prohibited use of electronic devices and attendant communications". The defendant's NDIS support package, which is to the value of $100,000, is likely to continue beyond the next review date. It has the effect of encouraging him in pro-social activities and directing him away from behaviours that have the potential to lead to further ESO breaches, consequent to his strong working relationship with Mr Barker.
The defendant is also subject to reporting obligations pursuant to the Child Protection (Offenders Registration) Act 2000 (NSW) (the CPOR Act), and, until 13 May 2025, his parole conditions, which include compliance with reasonable directions about accommodation, participation in treatment, employment, training, volunteer, leisure or other activity restrictions, non-association, place restrictions, drug and alcohol restrictions and testing and consent to third party information-sharing.
[8]
Consideration and determination of whether the Court is required to make an ESO
Although the defendant has not committed a serious sexual offence as defined in the Act since the Charleville offences in 2010, that record must be weighed in the context of opportunity to commit further such offences over that time and the nature of his supervision breaches, which suggest a continuing fascination with sexual offending against children. For much of those 15 years, he has been either in custody or residing in the community subject to stringent conditions of conduct. The defendant's offending in the community is not a matter of technical breaches of probation, parole or ESO conditions; he failed to comply with reporting obligations pursuant to the CPOR Act in 2014, which is a matter of specific relevance to the determination of this issue: s9(3)(g) of the Act. His usage of the unauthorised phone to access the internet, which was discovered following that breach and which is referenced above at [13[12]], was serious. His ESO breaches in 2019 canvassed at [13[17]], in 2022 at [11[18]], in 2023 at [13[19]], and, most recently, at [13[19]], concerning his behaviour in 2024, lead to the conclusion that returning the defendant to custody following these breaches had no deterrent effect on him. I also take into account the recent opinions of Drs Farrar and White as to the defendant's high level of risk of committing a further serious sexual offence.
I am satisfied to a high degree of probability that, had his online and face to face communications and attempted communications not been detected, there was an unacceptable risk of him going on to commit a serious sexual offence.
Although the defendant's NDIS support has a pro-social impact on his behaviour, NDIS staff lack the authority to check the content of a client's electronic devices. In any event, ensuring a client's observance of the criminal law is an unreasonable expectation to place on them, and one for which they are not qualified, by training or experience. It is not an acceptable alternative means of ensuring that the defendant does not commit a serious sexual offence.
Accordingly, I am satisfied of the need for an ESO. In my view, there is no basis for exercising the discretion to not make an ESO. I am satisfied that it is required for the period sought, of two years, in view of the ingrained nature of the defendant's aberrant behaviour that gives rise to the degree of his unacceptable risk.
[9]
Conditions of the ESO
In the event that the Court determines to make an ESO, the defendant disputes the necessity of some of the proposed conditions, which are the same conditions that were initially proposed for the ISO. The plaintiff has accepted many of the defendant's proposed changes, including a change that should address the concern raised by Mr Barker as to the defendant's access to sex workers. Those that remain for determination are as follows.
[10]
A scheduling condition
The defendant submits that a proposed clause permitting the DSO to require a schedule of movements should be qualified as to (1) when it must be required and (2) how changes to it that the defendant wishes to make are communicated to the authorities. The defendant submits that his past breaches have concerned his use of electronic devices, and therefore his physical whereabouts are not a matter of concern.
I am not satisfied that is so. Had the defendant's attempted communications with teens not been discovered, one might reasonably expect that such communications with local individuals would have been followed up with attempted physical contacts consistent with the nature of those activities. The plaintiff sought to meet the defendant's submission by proposed changes, which I find are reasonable and sufficiently flexible for the defendant, subject to certain changes. The clauses concerning a schedule of movements, with the changes I have made to the plaintiff's proposal italicised, will be as follows.
"Condition 6
If directed, you must notify a DSO at least 24 hours ahead of time of your expected movements and activities for each day from Tuesday to Friday. You must provide notice of your plans for Saturday, Sunday and Monday to the DSO on Thursdays. You must notify the DSO of the times that you expect to be away from your approved residence and the order in which you plan to attend each location or activity.
Condition 7
If you want to change anything in your schedule of movements once it is approved by the DSO, you must seek prior approval from a DSO about the change. If it is not possible to get approval beforehand, for example, if a train or bus you were going to catch is cancelled, you must inform the DSO as soon as possible afterwards."
[11]
Amendments to a condition concerning place and travel restrictions
The defendant seeks to amend a proposed condition that restricts places that he may attend, essentially by providing that he can attend some of those otherwise prohibited places if his NDIS worker is present. For reasons similar to those I have explained earlier, I do not accept that an NDIS worker should automatically be relied on to ensure compliance with ESO conditions. The plaintiff does not oppose the changes, provided that the amended condition provides that the accompanying person is "a person approved by a DSO", rather than "your NDIS support worker(s)". I note that amendment would provide the DSO with sufficient flexibility to allow that person to be a NDIS worker, if the DSO considered it appropriate for the particular visit. Another proposed change, which is conceded by the plaintiff, is in accordance with a concession made at the preliminary hearing, concerning condition 17(j).
[12]
Employment and training
A similar qualification is sought by the defendant in relation to condition 20, which concerns in part his attendance at "any job, volunteer work or educational course". The change is opposed by the plaintiff, on the basis that the presence of an NDIS worker would not sufficiently ameliorate the risk involved. I accept the plaintiff's submission, so that the condition will remain in its present proposed form.
[13]
Association with persons in custody
The defendant opposed condition 24, which prohibits him from associating with persons in custody without the prior approval of a DSO. I have some sympathy for the defendant's position, since so much of his opportunity for socialising over the last 15 years has been restricted to persons in custody, with some of whom he has doubtless formed friendships. However, as the plaintiff submits, the condition is not a blanket prohibition; each proposed association may be considered by the DSO on its merits. The proposed condition will remain unchanged.
[14]
Joining clubs or organisations
The plaintiff accepts that condition 27, which prohibits the defendant from joining a club or organisation without prior approval by a DSO, can be modified to enable the defendant to simply notify the DSO of having already joined the club or organisation. This should address one of the concerns raised by Mr Barker. Following post-hearing further negotiations, the parties have agreed to a re-wording of the condition that permits the defendant to join a club or organisation, provided he notifies the DSO within 48 hours.
[15]
The commencement date of the order
Although the order sought in the summons for an ESO are that it commence "on the date of the order", the parties both accept that the commencement date is determined by the terms of s 10(1) of the Act, which provides: "An extended supervision order commences when it is made, or when the offender's current custody or supervision expires, whichever is the later." That date is anticipated to be 13 May 2025, which is the date of expiration of the defendant's current sentence.
[16]
Orders
I make the following orders:
(1) Prayer 2 of the summons, which seeks an interim supervision order, is dismissed.
(2) Pursuant to ss 5B and 9(1)(a) of the Crimes (High Risk Offenders) Act 2006 (NSW), order that the defendant be subject to an extended supervision order ("the extended supervision order") for a period of two years.
(3) Pursuant to s 11 of the Crimes (High Risk Offenders) Act 2006 (NSW) direct that the defendant, for the period of the extended supervision order, comply with the conditions set out in the Schedule to this judgment.
(4) Access to the Supreme Court's file in respect of any document shall not be granted to a non-party without the leave of a Judge of the Court and, if any application for access is made by a non-party in respect of any document, the parties are to be notified by the Registrar so as to allow them an opportunity to be heard in relation to the application for access.
[17]
Schedule of Conditions Matthew Armstrong (150003, pdf)
[18]
Endnotes
An offence against s 61M(2) of the Crimes Act 1900 (NSW) (since repealed): Indecent assault of a person under the age of 10 years. The maximum penalty was imprisonment for 10 years.
The defendant is now 34 years old.
These were identified by the plaintiff at the preliminary hearing as the index offences, although at the final hearing the plaintiff appeared to refer to the Lismore offences (see [13[11]] below) as the index offences. In any event, the distinction is of now consequence.
National Disability Insurance Scheme (NDIS).
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Decision last updated: 20 February 2025