2014 IL App (1st) 123090
THIRD DIVISION November 26, 2014
No. 1-12-3090
In re COMMITMENT OF ENRIQUE RENDON, ) Appeal from the a Sexually Violent Person (The People of the ) Circuit Court of State of Illinois, Petitioner-Appellee, ) Cook County. v. Enrique Rendon, Respondent-Appellant). ) ) No. 98 CR 80004 ) ) The Honorable ) Michael B. McHale, ) Judge presiding. _____________________________________________________________________________
JUSTICE LAVIN delivered the judgment of the court, with opinion. Justices Fitzgerald Smith and Epstein concurred in the judgment and opinion.
OPINION
¶1 Respondent Enrique Rendon was civilly committed as a "sexually violent person" under
the Sexually Violent Persons Commitment Act (the Act) (725 ILCS 207/1 et seq. (West 2010))
and subsequently institutionalized in a secure facility. The trial court later conditionally released
respondent only to thereafter revoke the release on the State's petition, concluding that the
"safety of others," a standard identified in the statute (725 ILCS 207/40(b)(4) (West 2010)),
required such revocation. On appeal from the revocation order, respondent contends this
undefined statutory standard is unconstitutionally vague. He alternatively contends the State
failed to prove by clear and convincing evidence that his conditional release should be revoked.
Finally, he contends the trial court improperly relied on his clinical psychologist's reexamination
report at the revocation hearing, thus requiring reversal. No. 1-12-3090
¶2 We issued our initial opinion on August 21, 2014. Both parties subsequently filed
petitions for rehearing. Having reviewed the petitions and responses filed by the parties, we now
grant respondent's petition for rehearing, which necessarily requires modification of our opinion,
and deny the State's petition for rehearing upon modification of the opinion. We reverse the
judgment of the circuit court revoking respondent's conditional release.
¶3 BACKGROUND
¶4 Respondent, now age 66, has been civilly committed to the control, care, and treatment of
the Department of Human Services (DHS) since 2002, when he admitted the allegations in the
State's petition and the trial court accordingly found he was a sexually violent person (SVP)
diagnosed with pedophilia (sexually attracted to minor females), substance abuse problems, and
later, paraphilia not otherwise specified (sexually attracted to nonconsenting females),
frotteurism, and antisocial personality disorder. See 725 ILCS 207/5(f) (West 2010).
Respondent's underlying offenses included a 1989 guilty plea conviction and 16.5-year sentence
for aggravated criminal sexual assault, aggravated criminal sexual abuse, aggravated kidnaping,
and kidnaping, which was imposed after respondent kidnaped and assaulted an eight-year-old
girl. Respondent served six years and was released on parole. In 1997, respondent violated his
parole by repeatedly attempting to lure children into his vehicle and also refused sex offender
treatment. It was thereafter that the State sought to have respondent civilly committed under the
then newly effective SVP law.
¶5 Following his adjudication as an SVP, respondent was institutionalized in a secure
facility under the Act. After psychological treatment and polygraph examinations, respondent
self-reported having committed some 25 sexual offenses against females between the ages of 4
and 40. In one instance, respondent admitted climbing into bed next to his daughter's 17-year-
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old intoxicated girlfriend. Respondent's daughter found him naked from the waist down, and the
victim's pants were pulled down. Although respondent was arrested following this offense,
charges for the sexual offense apparently were never filed. Respondent also admitted repeatedly
raping his own wife. He claimed to have participated in various grooming and stalking
behaviors of young girls that culminated with rape or other sexual assaults. In addition, he said
he raped two prostitutes after supplying them with drugs and alcohol, then threatened their pimp
and had them "working for him" over the next several years, during which time he sexually
assaulted them. Respondent used physical force and weapons to coerce sexual compliance. He
also admitted to committing some 20,000 frottage offenses where he targeted young women and
rubbed against them for sexual gratification. His psychological evaluation revealed a consistent
pattern of deception by respondent.
¶6 Two years after being formally adjudicated an SVP, respondent filed a petition to be
conditionally released for reintegration into the community. Respondent was "reexamined" a
number of times to determine whether he remained an SVP, i.e., was dangerous because he
suffered from a mental disorder making it "substantially probable" that he would engage in acts
of sexual violence. See 725 ILCS 207/5(f) (West 2002). According to the reports,
reexamination consisted of reviewing his progress in treatment, psychological testing, clinical
interviews, and risk analysis. In May 2010, Dr. Edward Smith, a licensed clinical psychologist,
filed one such report noting respondent's sexual offense and DHS treatment history. Dr. Smith
stated that respondent was participating in treatment, making progress, and had completed a
relapse prevention plan, whereby he was to use techniques to manage and interrupt deviant
sexual arousal. Respondent's most recent penile plethysmorgraph (PPG) test had indicated no
deviant sexual arousal, and respondent demonstrated understanding of his cycle and plan. That,
3 No. 1-12-3090
together with his decreased risk of reoffense based on respondent's advanced age, led Dr. Smith
to recommend that respondent be reintergrated into the community on a "highly structured"
conditional release program. Dr. Smith stated that respondent had demonstrated sufficient
progress to lower his risk so that he could be safely managed in the community.
¶7 On the heels of this report and following a hearing, the court granted respondent
conditional release on June 30, 2010, and he was released into the community on September 14,
2010. As per the statute, the court-approved "conditional release plan" was a detailed agreement
between DHS and respondent severely limiting respondent's freedom and movement based on
his status as an SVP. Relevant for this appeal, respondent was placed on home confinement. He
was also ordered to refrain from contact with minor children absent DHS approval, and to refrain
from entering into sexually intimate relationships unless he first gave notification to his
conditional release agent. His plan required that respondent participate in sex offender
treatment, behavioral monitoring, PPG testing and polygraph examinations. Respondent was to
meet regularly with his conditional release agent to discuss "compliance with the conditions of
his release and treatment progress" and also comply with other special conditions identified by
his conditional release agent and case management team to restrict respondent from "high-risk
situations" with "access to potential victims." Tracking the language of the statute, the plan
provided that respondent's conditional release would be revoked if he "failed to abide by any
condition of his release plan" or if "the safety of others" required revocation, at the
recommendation of the conditional release agent. See 725 ILCS 207/40(b)(4) (West 2010).
Respondent signed and initialed a certificate indicating that he understood the plan and that his
conditional release would be revoked if he failed to abide by the stated conditions.
4 No. 1-12-3090
¶8 Respondent was on conditional release for less than a year before the State filed a
revocation petition on July 5, 2011. This petition was based on admissions during a polygraph
examination taken May 30, 2011, that respondent had masturbated to fantasies of rape more than
20 times while released, a fact which he failed to disclose to his treatment providers until faced
with the polygraph. The State also alleged that respondent failed the polygraph examination in
that deception was noted when he denied rubbing against anyone for sexual gratification, denied
masturbating to fantasies of rape, and denied masturbating to phone sex. The State asserted
respondent's deception threatened the safety of others and required revocation of his conditional
release. A hearing followed in August. Respondent acknowledged in open court that he had not
told his therapist about these fantasies and only disclosed them before his polygraph exam.
While the court denied the State's petition, it specifically warned that any further incidents would
justify revoking respondent's conditional release.
¶9 In October 2011, apparently in response to respondent's difficulty controlling deviant
arousal, he was prescribed Eligard, a prescription medication thought to lessen sexual urges by
lowering testosterone levels. A number of court status hearings also followed with the State
representing that respondent had either failed or deliberately distorted the results of his
polygraph exams and that he was not working with his treatment providers.
¶ 10 In June 2012, the State again filed a petition to revoke respondent's conditional release.
In making its allegations, the State relied principally on the June 6, 2012, reexamination report
filed by clinical psychologist Dr. Smith, which the State attached and incorporated into its
petition. The State alleged respondent was having "significant difficulty managing his deviant
sexual arousal" and had been "less than forthright with his case management team." In support,
the State cited respondent's deviant sexual fantasies "prior to the initiation of Eligard" and
5 No. 1-12-3090
respondent's denial of "masturbating to the deviant sexual arousal since the initiation of Eligard."
In addition, the State noted respondent's failed polygraph examinations, his intentional
interference with the examinations, and his admission that he contemplated having females in his
apartment without his conditional release agent's knowledge. The State noted Dr. Smith's
opinion that respondent's "lack of disclosure and the presence of secret keeping" suggested
defendant's word could not be taken "at face value." Given respondent's "high risk behaviors"
and lack of insight into the level of risk, the State urged the trial court to revoke respondent's
conditional release to protect "the safety of others" in the community. The State noted that under
the Act, conditional release may be revoked on that basis or if respondent violated any condition
or rule of conditional release.
¶ 11 An evidentiary hearing was held June 29, 2012. The court noted that the statute was
disjunctive; the State had to prove by clear and convincing evidence that a rule or condition was
violated or that the safety of others required revocation of conditional release. Licensed clinical
social worker Rhonda Meacham testified that she was on respondent's case management team
and had been treating him since fall 2010. She met with respondent weekly for 90-minute group
therapy sessions and had seen him individually for 60-minute sessions since February 2012. In
addition, the State noted Meacham's semiannual report, dated October 2011 to March 2012.
Meacham testified that respondent's primary issues were managing his deviant sexual arousal
and being transparent in therapy so he could pass his polygraph examinations.
¶ 12 Between June 2011 and February 2012, respondent had been unreliable in self-reporting.
Meacham testified he had failed his May 2011 polygraph examination and, in particular,
apparently failed the question of whether he had "rubbed up against anybody." In September
2011, respondent's PPG test revealed no indication of arousal, but respondent also "engaged in
6 No. 1-12-3090
behaviors that could have manipulated the outcome" which could invalidate the test and at the
very least showed he was not following instructions. In November 2011, he was said to have
distorted the polygraph results by shaking his legs during the test. In February 2012,
respondent's polygraph examination was inconclusive on two questions, one regarding whether
he masturbated to fantasies of rape, and he failed the question of whether or not he had women in
his apartment. Meacham noted that up until February 2012, respondent continued to struggle
with "fantasies of force" and would masturbate to thoughts of both force and frottage.
Respondent reported he could continue to masturbate to deviant fantasies without increasing his
risk of reoffending even though his reevaluation report indicated these types of fantasies
preceded sexually violent acts by respondent. On cross-examination, Meacham stated she did
not know what might negatively impact the PPG test results. She also stated when a person
failed one question on a polygraph test, some examiners considered the entire exam to be failed,
while some did not.
¶ 13 Nonetheless, Meacham also testified that based on respondent's recent polygraph
examination from June 25 (the Monday before the hearing), it appeared he had "become more
honest since February of 2012 to date." Meacham explained that cognitive therapy – like
snapping a rubber band on his wrist when faced with a deviant thought – had previously proved
ineffective for controlling respondent's arousal, so in October 2011, respondent was treated with
the drug Eligard, which decreases testosterone levels and helps manage sexual arousal. On
cross-examination, she stated she did not know how frequently respondent received the Eligard
injections or how many he had received. She also stated that some clients reported immediate
responses to the medicine, while it took others some six months to respond. In addition,
Meacham believed respondent's fantasies of using force had decreased but she could not
7 No. 1-12-3090
determine whether the Eligard had affected respondent's general sexist attitude toward women,
i.e., whether a cognitive shift had occurred. She testified that based on respondent's self-report,
"there was a pretty sharp decrease in the amount [sic] of fantasies that he was having" and he
was not masturbating at all. She testified that while he had made progress, she did not believe it
was the same progress "he claims to have made." She also believed "there was a shift taking
place" at the time he took the February 2012 polygraph while medicated with Eligard. Notably,
respondent's failure to disclose information relating to his masturbation had occurred prior to the
Eligard treatment. After the February 2012 polygraph, respondent made more disclosures
regarding his issues than before. For example, in response to his February 2012 exam,
respondent denied ever having a female in his apartment but reported that he "had a lot of urges
to have women in the apartment," which may have contributed to him failing the test.
Respondent specifically noted there was a female near his building one evening and, while he
had strong urges to invite her to his apartment, he never did. On cross-examination, Meacham
stated that in the last year, respondent's "sexual behavior" had improved. She stated that since
June 2012, respondent was "moving in the right direction" and had been more transparent.
¶ 14 Dr. Smith testified next that he had expertise in evaluating sexually violent persons,
specifically as to risk assessment and diagnosis. As part of his employment with DHS, Dr.
Smith had completed five annual reviews of respondent, with the last in June 2012, to determine
whether respondent's current placement was appropriate to meet his treatment needs. For the
evaluation, Dr. Smith conducted a clinical interview with respondent, reviewed his case
management and treatment notes for the year, and consulted with both Glazier, respondent's
conditional release agent, and Meacham, his treatment provider. Dr. Smith opined that
respondent remained an SVP, as defined under the Act, having been diagnosed with pedophilia
8 No. 1-12-3090
(sexually attracted to minor females), paraphilia not otherwise specified (sexually attracted to
nonconsenting females), frotteurism, substance abuse, and antisocial personality disorder.
Respondent still suffered from these mental disorders, which predisposed respondent to engage
in future acts of sexual violence, and it was still substantially probable, or much more likely than
not, that respondent would reoffend. The actuarial instruments placed respondent in the category
of low to "moderate high" range for risk of reoffending, with additional risk factors including
antisocial personality disorder, early-onset sex offending, and self-regulations problems.
¶ 15 Dr. Smith testified that even though respondent consistently attended treatment, given his
behavior for the 2011-12 evaluation period, respondent could not be safely managed in the
community. Dr. Smith cited respondent's failed polygraph examinations, admissions of
dishonesty to his treatment team, and lack of insight that having or masturbating to deviant
sexual fantasies was high-risk behavior. The fact that respondent had passed his most recent
polygraph test did not change Dr. Smith's opinion because respondent acknowledged over the
course of his review period that he had not been forthcoming with his treatment team about his
level of deviant sexual arousal and masturbation to deviant fantasies, or accepted the risk this
posed. Dr. Smith noted respondent had admitted that even before leaving on conditional release,
he had been masturbating to deviant sexual fantasies without telling his treatment providers and
"he had previously not been as honest and open as he would have led people to believe."
Respondent also admitted that he had not used intervention methods to interrupt his deviant
sexual arousal and "had thoughts about planning" to have women in his apartment without
anyone knowing. Dr. Smith noted, many times respondent's disclosures only came after a failed
polygraph and asserted respondent was not being forthright in his disclosures. Dr. Smith
testified that respondent's Eligard treatments did not change his opinion that respondent could
9 No. 1-12-3090
not be safely managed and should no longer be on conditional release because while Eligard was
a tool for controlling arousal, it did not necessarily "eliminate it," and could not be used to
control respondent's thoughts or cause him to "intervene" when aroused. Dr. Smith similarly did
not know how often respondent received the Eligard treatments.
¶ 16 Dr. Smith testified that sexual offending could be conceptualized as a cycle with a
number of different steps, and certain behaviors or emotions could lead a person "closer to the
point of offending." For respondent, his secret-keeping, deviant arousal, masturbation to deviant
fantasies, and failure to take responsibility even while in a restricted environment, were steps in
the sexual offense cycle moving him "closer and closer" to "high-risk behaviors being evident."
Dr. Smith testified respondent would be better managed in a secure facility because respondent's
access to individuals who "could be the source of either his thoughts, his fantasies, or his
planning behaviors" and potential victims would be limited. On cross-examination, Dr. Smith
acknowledged that respondent self-reported that his sexual fantasies had significantly decreased
following his Eligard treatments.
¶ 17 In closing, the State argued that the evidence indicated respondent had not followed the
conditions of release because he was uncooperative during psychological testing, but then chose
to argue the case almost exclusively on the alternative "safety of others" prong.
¶ 18 Following argument, the trial court granted the State's petition to revoke conditional
release. Although the court specifically found the State had not shown by clear and convincing
evidence that a specific rule in the conditional release agreement had been violated, the court
nonetheless found the "safety of others" required respondent's reconfinement. In support, the
court pointed to issues that were related to perceived shortcomings in complying with the
conditions imposed on respondent's release. This included Meachem's testimony regarding
10 No. 1-12-3090
respondent's unreliable self-reporting, his failed polygraph examinations, his failure to follow
instructions on the PPG test and the limited effect of Eligard on his deviant sexual thoughts. The
court also pointed to Dr. Smith's testimony that respondent could not be safely managed in the
community because of respondent's admitted failure to be forthright with his case management
team and lack of insight regarding the risk his sexually deviant fantasies posed. The court noted
Dr. Smith's testimony that respondent had disregarded treatment intervention methods and
specifically had thoughts about "how to get females into his apartment without anyone on the
case management team knowing about it." The court stated, "[t]he key is that these secrets have
only come to light after he has been caught on polygraph examinations," and further noted Dr.
Smith's testimony that these behaviors are part of the cycle of sexual offending, with "each step"
moving "the person closer and closer to re-offending." The court stated that because respondent
was not "moving forward in his treatment" and was "continuing to be deceptive with his case
management team," it was appropriate to revoke his conditional release.
¶ 19 On June 29, 2012, the trial court revoked respondent's conditional release, and he was
reinstitutionalized at a DHS facility. Respondent filed a motion to reconsider the judgment,
which was denied, and this timely appeal followed.
¶ 20 ANALYSIS
¶ 21 Respondent now challenges the revocation of his conditional release. 1 An understanding
of the law of conditional release under the Act is necessary before dissecting the parties'
particular arguments. The Act defines an SVP as a person who has been convicted of a sexually
1 The parties have not addressed whether subsequent events could have rendered this issue moot, since respondent can file yet another petition to be conditionally released (see 725 ILCS 207/60(a) (West 2010)). Even if that were true, we believe this case would fall under an exception to the mootness doctrine. See, e.g., In re Lance, 2014 IL 114899, ¶ 13 (discussing the public interest exception, which applies where public officers need authoritative guidance on a public question that will likely recur); In re Gloria B., 333 Ill. App. 3d 903, 904-05 (2002) (discussing the exception of capable of evading review, where the action must be of a short duration so that it cannot be fully litigated and respondent must be subject to the complained of action again).
11 No. 1-12-3090
violent offense and who is "dangerous" because he "suffers from a mental disorder that makes it
substantially probable that the person will engage in acts of sexual violence." (Emphasis added.)
725 ILCS 207/5(f) (West 2010); In re Detention of Stanbridge, 2012 IL 112337, ¶ 48; see also In
re Commitment of Curtner, 2012 IL App (4th) 110820, ¶¶ 31, 37 (defining substantially probable
as "much more likely than not" (internal quotation marks omitted)). Under the Act, a mental
disorder is a "congenital or acquired condition affecting the emotional or volitional capacity that
predisposes a person to engage in acts of sexual violence." 725 ILCS 207/5(b) (West 2010);
Stanbridge, 2012 IL 112337, ¶ 48. Although the proceedings set forth in the Act are civil in
nature (725 ILCS 207/20 (West 2010)), the State still must establish beyond a reasonable doubt
that an individual is an SVP; once the State does so, the respondent is committed to the custody
of DHS for control, care, and treatment "until such time as the person is no longer a sexually
violent person," which could hypothetically only end upon death. 725 ILCS 207/35, 40(a) (West
2010); Stanbridge, 2012 IL 112337, ¶¶ 48, 50.
¶ 22 In this case, respondent was found to be an SVP and was accordingly institutionalized in
a secure setting where he received treatment for his mental disorders. See 725 ILCS 207/50
(West 2010). Consistent with the Act, respondent was thereafter "reexamined" yearly to
determine whether he qualified for conditional release. See 725 ILCS 207/55 (West 2010);
Stanbridge, 2012 IL 112337, ¶ 49. The relevant statute specifically provided that these
reexaminations were "for the purpose of determining whether the person has made sufficient
progress to be conditionally released or discharged." 725 ILCS 207/55(a) (West 2010).
¶ 23 After eight years of institutionalization, and after finding respondent had made sufficient
progress in treatment, the court granted respondent conditional release on the recommendation of
Dr. Smith, presumably pursuant to section 60 of the Act (see 725 ILCS 207/60 (West 2010)).
12 No. 1-12-3090
Section 60 identifies the requirements underlying a petition for conditional release from
commitment in a facility. Section 60(c) specifically provides that after a petition for conditional
release is filed, the trial court or respondent may request a psychological examination, and a
probable cause hearing follows on the evaluators' reports. 725 ILCS 207/60(c) (West 2010). At
the relevant time in this case, section 60(c) stated that a full hearing was to take place on a
conditional release petition if, at the probable cause hearing, the trial court had reason to believe
"it is not substantially probable that the person will engage in acts of sexual violence if on release
or conditional release." 725 ILCS 207/60(c) (West 2010). Section 60(d), which addresses the
full hearing, provided that the trial court was to consider all the reports of the examiners filed
with the court and to "grant the petition unless the State proves by clear and convincing evidence
that the person has not made sufficient progress to be conditionally released." 725 ILCS
207/60(d) (West 2010). Reading section 60(c) together with section 60(d), as well as section
55(a), the Act authorized a court to conditionally release a committed respondent only if he had
made sufficient progress in treatment such that he was not substantially probable to commit
sexually violent acts while on conditional release. Cf. 725 ILCS 207/5 (West 2010) (under the
definitions, a " 'Sexually violent person' means a person who has been convicted of a sexually
violent offense, has been adjudicated delinquent for a sexually violent offense, or has been found
not guilty of a sexually violent offense by reason of insanity and who is dangerous because he or
she suffers from a mental disorder that makes it substantially probable that the person will
engage in acts of sexual violence"); see also People v. Cooper, 132 Ill. 2d 347, 354-55 (1989)
(same under the Sexually Dangerous Persons Act); People v. Trainor, 196 Ill. 2d 318, 336-38
(2001) (noting the similarities between the Act and the Sexually Dangerous Persons Act).
13 No. 1-12-3090
¶ 24 Later statutory amendments confirm this interpretation of the Act's plain language. See
In re Application of Skidmore, 2011 IL App (2d) 100730, ¶ 28 (" 'A subsequent amendment to a
statute may be an appropriate source for discerning legislative intent.' " (quoting In re Detention
of Lieberman, 201 Ill. 2d 300, 320-21 (2002)); see also In re Commitment of Sandry, 367 Ill.
App. 3d 949, 976 (2006) (noting in reference to section 60(d) of the Act (725 ILCS 207/60(d)
(West 2002)) that "[o]f course, what a person is 'making sufficient progress' in is treatment").
Effective on August 24, 2012, before final judgment was entered in this case, the legislature
amended the statutes cited immediately above, adding that reexaminations are for the purpose of
determining whether "(1) the person has made sufficient progress in treatment to be conditionally
released and (2) whether the person's condition has so changed since the most recent periodic
reexamination *** that he or she is no longer a sexually violent person." 725 ILCS 207/55(a)
(West 2012); Pub. Act 97-1075 (eff. Aug. 24, 2012) (amending 725 ILCS 207/55(a) (West
2010)); cf. 725 ILCS 207/65(b)(2) (West 2012) (discharge statute, mirroring language under
point two). 2 Likewise, the legislature amended section 60(c), so that a full hearing on the
petition for conditional release is required if there is "cause to believe the person has made
sufficient progress in treatment to the point where he or she is no longer substantially probable to
engage in acts of sexual violence if on conditional release." 725 ILCS 207/60(c) (West 2012);
Pub. Act 97-1075 (eff. Aug. 24, 2012) (amending 725 ILCS 207/60(c) (West 2010)). Section
60(d) was also amended to state: "The court shall grant the petition unless the State proves by
clear and convincing evidence that the person has not made sufficient progress in treatment to
the point where he or she is no longer substantially probable to engage in acts of sexual violence
2 If a respondent is not substantially probable to commit a sex offense on conditional release, then it is hard to say he meets the definition of an SVP, requiring that element. The State points out the obvious confusion the statutes create, as the standard for determining discharge is also that the respondent is no longer a sexually violent person (although seemingly in a larger sense).
14 No. 1-12-3090
if on conditional release." 725 ILCS 207/60(d) (West 2012); Pub. Act 97-1075 (eff. Aug. 24,
2012) (amending 725 ILCS 207/60(d) (West 2010)); cf. 725 ILCS 207/5(f) (West 2012)
(defining sexually violent person the same as in 2010 statute). Indeed, considering the evils
sought to be remedied by the law, it would make little sense to release an individual into the
public even while under supervision if he were substantially probable to commit the very
offenses for which he was originally committed. See Lieberman, 201 Ill. 2d at 312.
¶ 25 In simpler terms, to be conditionally released, an SVP must reach a certain point in
treatment so that he can be safely managed in the community while still in the custody and
control of DHS and while subject to the conditions set by the court and rules of DHS. See 725
ILCS 207/40(b)(4), (b)(5) (West 2010); see also Cooper, 132 Ill. 2d at 355 (noting, a sexually
dangerous person maintains that legal status while on conditional release); see also Morrissey v.
Brewer, 408 U.S. 471, 480 (1972) (noting that revocation deprives a respondent not of the
absolute liberty to which every citizen is entitled, but only of the conditional liberty properly
dependent on respondent's observance of conditional release restrictions). In relevant part, these
conditions require a respondent to attend and fully participate in assessment, treatment, and
behavior monitoring, including, but not limited to, medical, psychological or psychiatric
treatment specific to sex offending or drug abuse to the extent appropriate and based on
subsequent DHS recommendations. 725 ILCS 207/40(b)(5)(F) (West 2010). These conditions
also require a respondent to waive any confidentiality so that the court and DHS have access to
his assessment and treatment results. 725 ILCS 207/40(b)(5)(G) (West 2010). While on
conditional release, a respondent must comply with all other special conditions that DHS may
impose restricting him from "high-risk situations" and limiting "access or potential victims." 725
ILCS 207/40(b)(5)(BB) (West 2010). "If the Department [(DHS)] alleges that a released person
15 No. 1-12-3090
has violated any condition or rule, or that the safety of others requires that conditional release be
revoked, he *** may be taken into custody under the rules of the Department [(DHS)]." 725
ILCS 207/40(b)(4) (West 2010). The State maintains the burden of proving with clear and
convincing evidence that revocation of conditional release is required. Id.
¶ 26 In this case, less than a year after respondent had been conditionally released, the State
alleged respondent was essentially unable to manage his deviant sexual arousal, lacked insight
into his high-risk behaviors, and had failed his psychological exams. Consistent with the statute,
the State asserted these behaviors threatened the "safety of others" requiring revocation of
respondent's conditional release.
¶ 27 On appeal before this court, respondent argues that the statutory standard "safety of
others" is unconstitutionally vague because the legislature failed to define the phrase and,
consequently, the statute fails to give fair warning to individuals regarding its application,
resulting in arbitrary enforcement. Because we choose to dispose of this case on the basis of
respondent's alternative argument relating to the quantum of evidence adduced at the hearing, we
need not address respondent's claim of constitutional error, which he has raised for the first time
on appeal. Our supreme court has emphatically stated time and again that a reviewing court
should avoid constitutional questions where the case may be decided on other grounds. In re
Detention of Swope, 213 Ill. 2d 210, 218 (2004); see also In re E.H., 224 Ill. 2d 172, 178 (2006).
¶ 28 Respondent then alternatively contends the State failed to prove by clear and convincing
evidence that the "safety of others" required the court to revoke respondent's conditional release.
Respondent specifically argues the State presented evidence showing only "mere concerns about
[respondent's] progress in sex offender treatment" and showing that he failed to disclose deviant
sexual fantasies. Respondent asserts this evidence falls manifestly short of threatening the
16 No. 1-12-3090
"safety of others," which is a standard that must "mean more than simply the risk associated with
allowing a sexually violent person to remain on conditional release."
¶ 29 The State, in interpreting the meaning of the phrase "safety of others," argues revocation
is required under that provision where there is "concern that an SVP is heading towards
committing acts of sexual violence." In other words, a respondent need not commit an overt act
of sexual violence in order to come within the purview of the phrase.
¶ 30 As respondent correctly observes, the phrase "safety of others" is not specifically defined
in the Act. In the absence of a statutory definition, courts will assume that statutory words have
their ordinary and popularly understood meanings. People v. Bailey, 167 Ill. 2d 210, 229 (1995).
Webster's dictionary defines "safe" to mean "free from harm or risk" and "secure from threat of
danger, harm, or loss." Merriam-Webster's Collegiate Dictionary, http://www.merriam-
webster.com/dictionary/safe. We will construe this term in the context of the Act as a whole,
while considering the reason and necessity for the law, the evils sought to be remedied, and the
purpose to be achieved. See Stanbridge, 2012 IL 112337, ¶ 70. In doing so, we wish to
emphasize that under the Act it is the respondent's mental disorder, which necessarily
encompasses a volitional impairment, that makes him dangerous beyond his control, thus
presenting a risk or threat of harm to others. See Kansas v. Hendricks, 521 U.S. 346, 358 (1997);
People v. Swanson, 335 Ill. App. 3d 117, 122-23 (2002); In re Detention of Hayes, 321 Ill. App.
3d 178, 187-88 (2001). The previous violent acts and pattern of behavior merely serve as
evidence of both the mental abnormality and an important indicator of future dangerousness.
725 ILCS 207/5(b), (f) (West 2010); Hendricks, 521 U.S. at 358, 362; Stanbridge, 2012 IL
112337, ¶ 85; see also In re Commitment of Derry, 393 Ill. App. 3d 482, 485 (2009) (an SVP is
not committed for past conduct). If conditional release by definition means a respondent is not
17 No. 1-12-3090
substantially probable to engage in acts of sexual violence outside the confines of an institution,
then the converse means revocation of that release is required where his reoffense is substantially
probable. See 725 ILCS 207/55(a), 60(c) (West 2010); see also 725 ILCS 207/55(a), 60(c), (d)
(West 2012); cf. In re Ottinger, 333 Ill. App. 3d 114, 120-21 (2002) (under section 60(c) of the
Act, a trial court may grant a full hearing on an application for conditional release when it is not
substantially probable respondent will engage in acts of sexual violence if released).
Additionally, we note the plain language of section 40 is in the present tense, so that we must
examine whether the safety of others "requires" conditional release to be revoked based on
present danger (as opposed to past). We believe to read the statute otherwise would lead to
absurd results. See Lieberman, 201 Ill. 2d at 309 (in construing a statute, we must presume the
legislature did not intend absurd results).
¶ 31 Based on the foregoing, our review of the case law together with the entire statutory
scheme demonstrates that the risk of reoffense and, thus, the threat to the safety of others
presents itself when the respondent's mental illness is not effectively treated. See Ottinger, 333
Ill. App. 3d at 121-22; see also In re Detention of Lieberman, 379 Ill. App. 3d 585, 599 (2007)
(noting, "[t]he Constitution's safeguards of human liberty in the area of mental illness and the
law are not best enforced through precise, bright-line rules" (internal quotation marks omitted));
In re Commitment of Sandry, 367 Ill. App. 3d 949, 976 (2006) (noting that "an individual's
treatment is relevant to the decision as to whether that person is fit to be conditionally released").
Thus, the inquiry in a revocation proceeding relating to the "safety of others" may specifically
focus on the respondent's progress, or regression, in treatment. Indeed, the entire purpose of the
SVP law anticipates and aims to prevent sexual dangerousness stemming from mental illness, so
it would make little sense to tie "safety of others" to overt acts of sexual violence. This
18 No. 1-12-3090
conclusion is consistent with that of our sister state, Wisconsin, which has a nearly identical
provision in its SVP statute; in interpreting "safety of others" in the context of conditional
release, the Wisconsin Supreme Court has held that a trial court need not wait until "overtly
dangerous acts have been committed" or ignore indications that certain rule violations can
themselves represent a risk to the community. In re Commitment of Burris, 2004 WI 91, ¶¶ 72-
74, 273 Wis. 2d 294, 682 N.W.2d 812; see also In re Detention of Hardin, 238 Ill. 2d 33, 46
(2010) (noting the Wisconsin SVP statute is substantially similar to the Illinois SVP statute);
Wis. Stat. Ann. § 980.08(8) (West 2014) (current Wisconsin statute).
¶ 32 In now reviewing the court's determination on respondent's danger to the safety of others,
we observe a trial court's ruling, that the State established by clear and convincing evidence that
the "safety of others" required revocation of respondent's conditional release, will not be
disturbed unless it is against the manifest weight of the evidence, i.e. where the opposite
conclusion is clearly the proper result. See In re D.D., 196 Ill. 2d 405, 417 (2001); Sandry, 367
Ill. App. 3d at 978; People v. Robin, 312 Ill. App. 3d 710, 715 (2000). "Clear and convincing
evidence is defined as the quantum of proof that leaves no reasonable doubt in the mind of the
fact finder as to the veracity of the proposition in question." In re Gloria C., 401 Ill. App. 3d
271, 282 (2010). Notably, it is within the province of the trier of fact, not the mental health
professionals, to weigh all the evidence and witness credibility. Gloria C., 401 Ill. App. 3d at
282; Robin, 312 Ill. App. 3d at 715.
¶ 33 Here, the trial court gave all appearances of favorably crediting the testimony of both
witnesses for the State – respondent's treatment provider, Meacham, and his psychological
evaluator, Dr. Smith, even though their testimony was at odds regarding the main issue of
whether respondent posed a present danger to the safety of others. As the facts reveal, Meacham
19 No. 1-12-3090
did not explicitly testify that respondent was presently a danger to the safety of others, while Dr.
Smith did. The court determined the testimony regarding respondent's unreliable self-reporting,
failed polygraph exams, thwarted PPG test, lack of insight regarding his high-risk deviant
fantasies, and plotting, all demonstrated that the State had established by clear and convincing
evidence that respondent's continued release posed a threat to the safety of others, even though
the court had already ruled there was no evident rule violation of conditional release. This is
demonstrably incongruous given that the aforementioned tasks were compliance failures solely
related to conditions of respondent's release. The trial court determined the State failed to prove
respondent committed a conditional release rule violation, but the court then, in error, identified
rule violations, particularly related to perfidy during polygraph examinations, as the basis for
determining respondent posed a danger to the safety of others.
¶ 34 Thus, the determination that the State proved by clear and convincing evidence that the
"safety of others" required revocation of respondent's conditional release was against the
manifest weight of the evidence. Here, while the evidence indicates respondent's lack of
compliance with treatment protocol and deviant sexual fantasies might have posed a threat to the
public prior to February 2012 (insofar as these fantasies seemed to precede sexually violent acts),
this threat apparently diminished by the time of the hearing. Meacham testified that respondent's
fantasies of force had declined, he was not masturbating at all, and indicated he was making
disclosures about sexual urges and resisting the urges. She testified respondent's "sexual
behavior" had improved in the last year and that since June 2012, he had been "moving in the
right direction." Further, Meacham believed a shift was taking place as of February 2012, some
five months before the hearing. Significantly, while respondent had previously thwarted or
failed his polygraph exams, just prior to the evidentiary hearing, he passed the polygraph exam.
20 No. 1-12-3090
Meacham testified that Eligard could sometimes take some months to be effective, and the
evidence essentially suggested that this was just such a case.
¶ 35 By contrast, Dr. Smith testified the Eligard treatments could not eliminate arousal or
change respondent's cognitive therapy response to arousal, for example, by forcing him to
"intervene" when aroused or recognize the risk deviant fantasies posed. But, we must return to
the fact that according to Meacham, respondent was not experiencing arousal at the time of the
hearing. Again, she indicated he was then in control of his fantasies and disclosing. Dr. Smith
did not directly contradict Meacham's testimony, as much of his testimony and the basis for his
opinion appeared to reference respondent's past conduct and behavior. See In re Winters, 255 Ill.
App. 3d 605, 609 (1994) (the weight to be assigned an expert's opinion depends on the factual
basis for that opinion and an expert's opinion is only as valid as the reasons for it); see, e.g., In re
James, 191 Ill. App. 3d 352, 354 (1989) (the factual basis for the medical opinion for an
involuntary commitment to a mental health facility must be judged by a standard similar to the
clear and convincing standard).
¶ 36 While the trial court is generally entrusted to resolve contradictions in the evidence, here
the only evidence was that presently respondent had improved. From an evidentiary standpoint,
respondent's improved behavior and lack of arousal necessarily defeated Dr. Smith's concerns,
which were seemingly based on past conduct, regarding respondent's threat to the safety of
others. Notably, because Dr. Smith's opinion (and June reevaluation report) rested on
respondent's self-reports and analysis of disclosures following failed polygraph examinations, as
well as Meacham's assessments of respondent, it follows that we cannot simply discount
evidence that respondent passed his most recent polygraph and that, per Meacham, he was
improved. See Winters, 255 Ill. App. 3d at 609; James, 191 Ill. App. 3d at 354. In short, this
21 No. 1-12-3090
case does not present the quantum of evidence required to clearly and convincingly demonstrate
that respondent was at that time a threat to the safety of others. At most, the record shows by
clear and convincing evidence that respondent still maintained struggles with disclosing at the
time of the hearing and harbored misogynistic thoughts against women. However, we would
note the State cannot expect that respondent should conform all thoughts to the law, but rather
the State's expectation is that respondent should conform his actions to the law. The evidence
here did not present a sufficient nexus to establish that respondent's deviant thoughts and mental
status in treatment made his risk of reoffense while on conditional release substantially probable
(or much more likely than not), such that he was present a danger to the safety of others. See
725 ILCS 207/5(f) (West 2010); Curtner, 2012 IL App (4th) 110820, ¶¶ 31, 37; see also supra ¶¶
23, 30 (discussion of standard for revoking conditional release). While the court found
respondent had taken steps in the cycle of reoffending, it was not clear from Dr. Smith's
testimony or the court's findings how many more steps respondent would have to take before
respondent would be more likely than not to commit a sex offense.
¶ 37 We recognize the high-stakes related to conditionally releasing an SVP, and certainly no
court wants to be "the one" that condones the release of a respondent who later reoffends. But,
the State must meet its burden in providing a strong evidentiary basis for revoking the release
when liberty interests are clearly at stake.
¶ 38 Lastly, respondent argues that the circuit court improperly relied on Dr. Smith's mental
health reevaluation. We address this issue only because it touches on the foregoing factual and
legal analysis of respondent's case. Here, the trial court noted at the outset of the hearing that it
had read this particular report, which also formed the basis of the State's petition to revoke
respondent's conditional release. Respondent now essentially argues that the court, in reading
22 No. 1-12-3090
the report, relied on evidence outside the record because the report contained graphic details of
respondent's prior sex offenses not testified to at the hearing. Although respondent frames this
argument as a violation of his constitutional right to due process, we think this is more
appropriately considered as an evidentiary issue.
¶ 39 We observe that the Act rather explicitly provides that "all evaluations conducted
pursuant to this Act *** shall be admissible at all proceedings held pursuant to this Act." 725
ILCS 207/30(c) (West 2010). Moreover, in determining whether conditional release is
appropriate, a court is required to consider the respondent's mental disorder, mental history, and
present mental condition, all of which necessarily requires a court to review and rely on the
respondent's mental health evaluations. See 725 ILCS 207/60(d) (West 2010); see also 725
ILCS 207/40(b)(2) (West 2010). Reading the statutes together, it appears perfectly appropriate
for both the trial court and this court to review respondent's mental health evaluation when
considering whether revocation of conditional release is warranted. Moreover, here, the State
attached the reexamination report to its petition and Dr. Smith referenced the report in his
testimony. Respondent in fact cited the report during cross-examination of Meacham to show
respondent's improved state. Thus, respondent not only failed to object to the implicit entry of
the report into evidence, thus forfeiting the issue, but seems to have positively acquiesced in the
alleged error. See People v. Enoch, 122 Ill. 2d 176, 186 (1988); see also McMath v. Katholi, 191
Ill. 2d 251, 255 (2000) (a party cannot complain of an error to which he consented). Given the
developing area of law presented by the Act, it is important that the parties fully develop
arguments below for the benefit of later addressing issues on appeal.
¶ 40 CONCLUSION
23 No. 1-12-3090
¶ 41 Based on the foregoing, we reverse the judgment of the circuit court revoking
respondent's conditional release and reinstate the previous order authorizing respondent to be on
conditional release under strict monitoring. We observe that mental health treatment is not a
static process, but a dynamic one. We offer no opinion regarding whether circumstances have so
changed that respondent is not now eligible to be on conditional release since this cause was
originally filed.
¶ 42 Reversed.