Article 87

Article 87 of the Constitution of India provides for the President’s special address to Parliament, establishing a constitutional practice that symbolises the formal commencement of parliamentary business each year and after every general election. This Article enshrines one of the most important ceremonial and constitutional traditions of India’s parliamentary democracy, where the President communicates the Government’s policy agenda and the reasons for summoning Parliament.

Constitutional Provision and Structure

Article 87, contained in Part V (The Union), outlines the procedure and purpose of the President’s special address. It has two distinct clauses:

• Clause (1): Timing and Purpose of the AddressThe President shall address both Houses of Parliament assembled together:
  1. At the commencement of the first session after each general election to the Lok Sabha.
  2. At the beginning of the first session of each year.

  In this address, the President informs Parliament of the causes of its summons and outlines the Government’s policy direction, priorities, and legislative agenda.

• Clause (2): Discussion on the AddressParliament must make rules for the allocation of time to discuss the matters referred to in the President’s address. This ensures that members of Parliament have a structured opportunity to deliberate upon, criticise, or support the Government’s policies as expressed in the address.

This discussion, popularly known as the Motion of Thanks, is a key parliamentary procedure that allows both Houses to debate the Government’s performance and agenda.

Purpose and Significance of the Special Address

The President’s special address under Article 87 serves several important constitutional and democratic purposes:

• It marks the formal opening of Parliament’s legislative calendar, signifying the start of its work for the year or after a general election.
• It communicates the Government’s policies, legislative priorities, and development programmes.
• It provides a comprehensive review of the nation’s political, economic, and social situation, reflecting the executive’s policy vision.
• It promotes transparency and accountability by enabling Parliament to evaluate the Government’s commitments and achievements.

Although the President’s address is delivered in his or her name, its content is prepared by the Council of Ministers, making it a collective policy statement of the Government. This underscores the President’s constitutional role as a nominal executive, acting on the advice of the elected Government under Article 74.

Relation with Other Constitutional Provisions

Article 87 is closely linked with the following provisions:

• Article 86 – Grants the President the right to address and send messages to either House.
• Article 88 – Enables the President to require the attendance of Ministers in Parliament to explain policies.
• Article 85 – Deals with the summoning and proroguing of Parliament by the President.

Together, these provisions establish a system of communication between the executive and legislature, maintaining the constitutional principle of executive accountability to Parliament.

Historical Background and Evolution

The practice of a Head of State addressing the legislature at the beginning of its session originates in the British parliamentary system, where the monarch’s “Speech from the Throne” outlines the Government’s legislative agenda. The framers of the Indian Constitution adopted this tradition, adapting it to the republican and democratic character of India.
The first Presidential address in independent India was delivered by Dr. Rajendra Prasad on 31 January 1950, only a few days after the Constitution came into force. Since then, the address has been an annual tradition, setting the tone for parliamentary proceedings and national policy discussions.

Procedure and Parliamentary Practice

The procedure relating to the President’s special address follows well-established conventions:

1. Preparation of the Address
   • The draft is prepared by the Government of India, particularly the Cabinet, outlining its legislative and policy agenda.
   • The final version is approved by the Council of Ministers and presented to the President for delivery.
2. Delivery of the Address
   • The President delivers the address to a joint sitting of both Houses of Parliament, usually held in the Central Hall of Parliament House.
   • Members of both the Lok Sabha and the Rajya Sabha are required to attend the session.
3. Motion of Thanks
   • After the address, both Houses discuss the contents through a Motion of Thanks moved by a member of the ruling party.
   • Members of the Opposition and Treasury Benches participate in the debate, commenting on government policies and raising issues of public concern.
   • The Prime Minister typically replies to the debate, addressing criticisms and clarifying government policies.
   • The motion is then put to vote; though largely symbolic, it represents parliamentary endorsement of the Government’s policy direction.

This procedure strengthens the principle of collective responsibility, allowing Parliament to scrutinise the Government’s policy plans and performance.

Constitutional and Judicial Perspective

While there are no major Supreme Court judgments directly interpreting Article 87, the constitutional significance of the President’s address has been indirectly recognised in judicial discussions on parliamentary procedures and the separation of powers.
In related rulings such as Shamsher Singh v. State of Punjab (1974), the Supreme Court clarified that the President acts on the advice of the Council of Ministers, reaffirming that the President’s address reflects the Government’s will rather than personal discretion.
This constitutional interpretation preserves the parliamentary nature of the executive, ensuring that the elected Government remains accountable for the policies outlined in the address.

Political and Democratic Significance

The special address plays a key role in India’s political life:

• It provides the Government’s policy roadmap at the start of each legislative year.
• It allows the Opposition to critique the Government’s approach, ensuring democratic balance.
• It highlights the State of the Nation, including achievements, challenges, and policy goals.
• It symbolises the unity of the Republic, bringing together the Head of State, the executive, and the legislature.

Through the Motion of Thanks debate, Parliament exercises one of its most important forms of executive oversight. In some instances, amendments to the Motion of Thanks have been adopted to express disapproval of government actions, making it a politically significant indicator of parliamentary confidence.

Notable Presidential Addresses

Throughout India’s history, Presidential addresses have reflected the changing priorities and political realities of different periods:

• 1950s–1960s: Focused on nation-building, planned economic development, and consolidation of democracy.
• 1970s–1980s: Highlighted socio-economic reforms, emergency governance, and constitutional amendments.
• 1990s–2000s: Reflected liberalisation, economic reforms, and coalition politics.
• Recent years: Emphasised digital governance, infrastructure expansion, social welfare, and national security.

These addresses have thus served as important historical records of India’s policy evolution and political transformation.

Contemporary Relevance

In modern governance, Article 87 continues to embody the spirit of transparency, coordination, and democratic dialogue. The President’s address remains an essential instrument of communication between the executive and legislature.
Contemporary debates often focus on the content and political tone of the address, reflecting the policy direction of the ruling government. Despite occasional controversies or boycotts by opposition parties, the address continues to be a constitutionally mandated and symbolically significant event.

Significance in Parliamentary Democracy

Article 87 upholds several key democratic principles:

• Accountability: Ensures that the Government’s policies are presented to the representatives of the people.
• Transparency: Allows citizens to know the legislative and policy intentions of the Government.
• Continuity: Maintains the convention of executive-legislative cooperation through annual sessions.
• Dialogue: Provides a structured mechanism for Parliament to discuss and critique the Government’s agenda.