If the State considers itself to be at war, why does it not state so where the Constitution requires it to do so?
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The Ravenna case
It all begins in Ravenna, a historic city and major Italian port on the Adriatic coast. The port of Ravenna is a civilian port: bulk cargo, fertilizers, containers, cruise ships. Yet in a brief filed this summer with the Council of State, the State Attorney General’s Office attributed “military significance” to it within the country’s maritime defense system. The reason lies in a single sentence: making certain data public would pose an unacceptable risk because “a ‘piecemeal’ and ‘hybrid’ world war is underway, involving, among others, Italy as well.”
The data did not consist of routes, schedules, or ship names. They were aggregate figures: the amount of military equipment that left the port in 2025, broken down by four-month period and categorized as exports or transit. Journalist Linda Maggiori had requested this information in January under the general right of access to public information—Italy’s equivalent of the FOIA—which does not require justification. On October 13, Il Fatto Quotidiano turned the statement into a national issue. On October 16, the Sixth Section of the Council of State rejected the Customs Agency’s appeal.
In February, the Customs Agency, which reports to the Ministry of Economy and Finance (MEF), denied the request entirely, citing national security, public order, and commercial confidentiality. Maggiori, represented by attorney Andrea Maestri, filed an appeal with the Emilia-Romagna Regional Administrative Court (TAR), which on July 1 partially upheld the appeal: the quantities must be made public because the numerical data is “neutral,” while the destinations may remain confidential. Customs, represented by the State Attorney’s Office, filed an appeal. The Council of State upheld the Regional Administrative Court’s ruling: the administration failed to demonstrate either the necessity or the concrete nature of the harm. It also noted “apparently contradictory” conduct, as the Livorno Customs Office had previously provided similar data without objection.
In February 2025, approximately 13 metric tons of forged parts bound for an Israeli defense company were seized in Ravenna without export authorization; the proceedings are ongoing, and the presumption of innocence applies. It appears that on October 14 of this year, another 4 metric tons were at the port.
What does “war” mean, who decides, and the arms law
The word has three meanings, and memory confuses them. The first is constitutional. Article 11 establishes that Italy “rejects war as an instrument of aggression against the freedom of other peoples and as a means of resolving international disputes.” Article 78 entrusts the Chambers with the authority to declare a state of war and to grant the necessary powers to the government; Article 87 assigns the declaration of war to the President of the Republic. In the history of the Republic, a state of war has never been declared: neither in 1991, nor for Kosovo, Afghanistan, or Libya.
The second meaning is international: under international humanitarian law, armed conflict exists de facto, but supplying weapons to a belligerent party—according to prevailing legal opinion and that of the International Committee of the Red Cross—does not make one a party to the conflict. The third issue is political-strategic. “Hybrid warfare” (cyberattacks, sabotage, disinformation below the threshold of armed conflict) and “proxy war” are analytical tools, not legal categories. In a judicial ruling, therefore, a political term was used to justify an exception to a legal right. The Council of State rejected the postponement.
Parliament declares a state of war, authorizes missions (Law 145/2016), and receives the annual report on exports. The government authorizes exports through the UAMA of the Ministry of Foreign Affairs; the Prime Minister is the sole custodian of state secrets (Law 124/2007), under the oversight of COPASIR. The President of the Republic chairs the Supreme Defense Council. The Ministry of Defense signs the classified aid packages for Ukraine. The State Attorney’s Office, which reports to the Prime Minister’s Office, defends government agencies in court: its briefs are legal documents, not foreign policy statements. No minister has yet clarified whether they agree with the statements made therein.
over, the information has never been classified as a state secret. Customs authorities have invoked the relevant provisions of Article 5-bis of the Transparency Decree (Legislative Decree 33/2013), which allow for a refusal only if necessary to avoid “concrete harm” to national security, defense, or international relations.
Law No. 185 of 1990 prohibits the export and transit of arms to countries engaged in armed conflict in violation of Article 51 of the UN Charter, to countries whose policies conflict with Article 11, to countries under embargo, or to those responsible for serious human rights violations. However, it excludes government-to-government transfers and transits for NATO forces. The annual report to Parliament (Art. 5) lists authorizations by country and company, not by port: no public document specifies how much passes through a single port. This is the gap that the Ravenna petition sought to fill. According to the Peace and Disarmament Network, the government’s reform bill, approved by the Senate in 2024 (A.C. 1730), would reduce the data included in the report; based on the sources consulted, it has not yet been definitively approved.
Those who defend confidentiality argue that harmless data—aggregated and cross-referenced with maritime tracking data—could reveal supply routes: this is the argument used by the Trieste Customs Office to deny an identical petition. Also important are obligations to allies and corporate confidentiality. Those advocating for transparency point out that Law 185 stems from the idea that arms require public oversight, not less, because they pertain to Article 11 and, in the case of free transfers, involve public funds. An annual total does not enable hostile actions, and data published in Livorno does not become dangerous simply because it is in Ravenna.
Secrecy has a legitimate place. The Constitutional Court has linked it to national security since Ruling 86/1977 and reaffirmed this in the Abu Omar case (106/2009). Secrecy becomes problematic when it loses its criteria: concrete evidence of harm, proportionality, a time limit, consistency among agencies, and oversight by a judge or Parliament. The argument of a “piecemeal world war” failed on all counts. It did not identify any harm, rejected the Regional Administrative Court’s (TAR) compromise solution, treated data from a past year as if it were an ongoing operation, and contradicted the Livorno ruling. If merely invoking a widespread conflict suffices, then that justification applies to any data and indefinitely: hybrid wars, as described in official documents themselves, have no declared beginning nor anticipated end.
That language has a specific origin: the Ministry of Defense’s non-paper from November 2025, according to which Italy is already embroiled in a hybrid conflict. Committees and unions believe that part of Ravenna’s cargo is destined for Haifa and Ashdod: the withheld data would make it possible to verify this.
The political paradox
The government states in Parliament that Italy is not at war; one of its agencies writes the same in court to conceal a figure. The case was successfully closed, but only thanks to a journalist willing to pursue the matter through two levels of appeal. Yet, even with the case closed, the gravity of what was stated remains.
If the state deems the international situation serious enough to restrict the right to information, that assessment cannot be confined to a customs office or a legal brief. The logic of Article 78 applies even on a small scale: whoever invokes the exception must answer for it before Parliament. All that is needed is the uniform publication of quantities for each port—as requested by the Ravenna Region and Municipality—their inclusion in the report on Law 185, and a review of the classifications by COPASIR, with predefined deadlines.
An emergency becomes permanent when no one declares it and no one revokes it. One question remains for Parliament: if the State considers itself to be at war, why does it not state so where the Constitution requires it to do so? And if it does not consider itself to be at war, by what authority does one of its bodies write as much?
