The Assam government has reinforced its population policy, making individuals with more than two children ineligible for government jobs and certain welfare benefits, with new amendments coming into effect from December 5, 2025. This updated policy, however, introduces relaxations for specific indigenous communities, allowing them to have up to three children without facing these restrictions.

The amendments to the Population and Women Empowerment Policy of Assam, 2017, aim to promote responsible family planning, gender justice, and sustainable development across the state. The move is expected to significantly impact job aspirants, existing government employees, and those seeking to participate in local body elections, while also addressing demographic concerns articulated by state leadership.

What was announced

The State’s Health and Family Welfare Department issued a notification on December 5, 2025, formally implementing amendments to the Population and Women Empowerment Policy of Assam, 2017. This notification reinforces the two-child norm as a mandatory eligibility criterion for government employment, participation in self-help groups (SHGs), and contesting elections to panchayats and urban local bodies.

A key aspect of the amended policy is the introduction of specific exemptions. Scheduled Castes (SC), Scheduled Tribes (ST), “Tea Garden Tribes,” and the Matak and Moran communities are now permitted to have up to three children without losing their eligibility for government jobs and associated benefits. Chief Minister Himanta Biswa Sarma announced these relaxations on October 24, 2025, explaining that the decision was made for these “micro-communities” to prevent their demographic decline. The Chief Minister stated that this decision was based on the opinions of various social scientists.

Why it matters

This policy is a significant step in Assam’s long-term strategy to manage its population growth and ensure equitable distribution of resources. It directly affects a wide range of citizens, from young individuals aspiring for government service to existing employees and those involved in local governance. The government aims to institutionalise responsible family planning within its governance structures and development programmes.

The policy’s proponents argue it will encourage smaller families, thereby reducing the dependency burden and promoting women’s health by limiting repeated pregnancies. By linking demographic behaviour to access to opportunities and welfare, the state seeks to foster a more sustainable socio-economic environment. The amendments also underscore the government’s commitment to discouraging early marriage and improving maternal health outcomes.

Background

The journey towards Assam’s population policy began several years ago. The initial draft population policy was first announced by then Health Minister Himanta Biswa Sarma on April 9, 2017. At the time, the draft proposed that individuals with more than two children would not be eligible for government jobs. The policy also suggested making education up to university level free for all girls in the state.

The Assam Cabinet subsequently approved the State Population Policy Bill on August 31, 2017, with a focus on women’s empowerment as a key strategy for population stabilisation. The Population and Women Empowerment Policy of Assam, 2017, was then passed by the state assembly. Following this, the Assam cabinet, under then Chief Minister Sarbananda Sonowal, approved the formal implementation of the two-child norm for government jobs on October 22, 2019, setting an effective date of January 1, 2021. This decision also included provisions against individuals who had engaged in child marriage.

Chief Minister Himanta Biswa Sarma has consistently articulated the government’s stance, linking population control to the eradication of poverty and illiteracy in the state. He has specifically highlighted concerns over population growth rates in certain communities, particularly immigrant Muslims, stating that such growth contributes to economic disparities and pressure on land. In July 2021, Chief Minister Sarma also announced plans to create a “Population Army” of 1,000 youths to raise awareness and distribute contraceptives in Muslim-dominated areas.

The policy’s scope expanded even before the 2025 amendments, with the Assam Panchayat (Amendment) Act, 2018, barring individuals with more than two children from contesting panchayat elections.

Key details

Under the Population and Women Empowerment Policy of Assam (Amendment), 2025, candidates applying for government employment must adhere to the two-child norm. This means that individuals with more than two children are generally ineligible for state government jobs.

However, the policy now includes significant exceptions for certain communities. Members of Scheduled Castes, Scheduled Tribes, Tea Garden Tribes, and the Matak and Moran communities are eligible for government jobs even if they have up to three children. This relaxation acknowledges the socio-economic contexts and concerns about demographic changes within these specific groups.

Beyond family size, the policy also stipulates that individuals, both male and female, who marry below the legal age will be deemed ineligible for government jobs or state-funded employment-generation schemes. Existing government employees are also expected to strictly adhere to the two-child norm, serving as role models for society.

The revised framework extends its influence to self-help groups (SHGs), where those with members uniformly adhering to the two-child (or three-child for exempted communities) policy will receive special government incentives. Furthermore, the government has indicated its intention to legislate legal provisions to bar people with more than two children from contesting panchayat and municipal elections, with similar provisions being considered for other statutory bodies and committees. There is also a proposal to introduce minimum educational qualifications as eligibility criteria for contesting elections to panchayats and urban local bodies. The State government also plans to engage with the Union Government to ensure that Members of Legislative Assembly (MLAs) adhere to family planning norms, potentially leading to disqualification for violators.

Reactions

The population policy, particularly its two-child norm and its targeted approach, has drawn varied reactions from political parties, civil society organisations, and experts.

The opposition Congress party has criticised the Chief Minister’s statements on population control, calling them “misinformed and misleading.”

The Population Foundation of India (PFI), a non-governmental organisation, has cautioned against the implementation of coercive population policies. The PFI has highlighted China’s past experience with stringent population controls, which led to a population crisis and an abnormally high male-female ratio, and has since been rescinded. Poonam Muttreja, Executive Director of the PFI, stated that denying access to social welfare schemes to families with more than two children could “adversely impact the already underserved and vulnerable, rather than address population growth.” The PFI also noted that the total fertility rate (TFR) for women in Assam had declined from 2.2 in 2015-16 to 1.9 in 2020-21, which is below the replacement rate of 2.1, suggesting a natural decline in population growth.

Gender activists, such as Gita Bhattarcharya from Assam, have labelled such policies as “deeply misogynistic” and “communally polarising.” Bhattarcharya argued that these policies often penalise marginalised women who have limited control over their reproductive decisions. Critics also point out that population control measures linked to incentives and disincentives may violate international agreements like the International Conference on Population and Development Programme of Action (ICPD POA) from 1994 and India’s National Population Policy (NPP) of 2000, both of which stress individual informed choice and consent.

Despite the criticisms, Chief Minister Himanta Biswa Sarma has remained firm on the policy, asserting its necessity for the state’s long-term welfare. He has maintained that the government is not against any community but is fighting against poverty, which he links to population growth. Sarma has also appealed to Hindus in Assam to consider having at least two or three children, citing demographic imbalances within the state.

What’s next

The amendments to the Population and Women Empowerment Policy of Assam are currently in effect as of December 5, 2025. The state government continues to focus on public awareness campaigns and community-level sensitisation to ensure fair implementation of the policy. Further legislative actions are anticipated regarding the eligibility criteria for contesting elections to the State legislature, with the government proposing that MLAs also adhere to the two-child norm. The success of the policy will largely depend on its sensitive implementation, ensuring it does not disproportionately disadvantage vulnerable sections of society.

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