As an upper limit? As a lower limit? What do you mean? Forcing people who don’t want kids to have two is insane. Who will make it happen? Is there a conception agency where agents just go a rape women in this imagined scenario? Forcing a third pregnancy to terminate is also pretty insane. Suppose the mother doesn’t even know she’s pregnant until pretty far along. Suppose a mother hides her pregnancy and gives birth in secret; is that baby getting killed? In either case, what is the punishment for violation? Suppose a woman is incapable of having kids when you mandated 2; is she to be executed for being unable to fulfill this societal requirement? Suppose a woman intentionally had more than her government-permitted 2 children; what is her sentence for providing extra mouths to feed? It’s unethical, it’s not reasonably enforceable, and frankly, I’m not sure I understand what such a policy would even be attempting to accomplish.