Neural Combinatorial Optimization (NCO) has mostly focused on learning policies, typically neural networks, that operate on a single candidate solution at a time, either by constructing one from scratch or iteratively improving it. In contrast, decades of work in metaheuristics have shown that maintaining and evolving populations of solutions improves robustness and exploration, and often leads to stronger performance. To close this gap, we study how to make NCO explicitly population-based by learning policies that act on sets of candidate solutions. We first propose a simple taxonomy of population awareness levels and use it to highlight two key design challenges: (i) how to represent a whole population inside a neural network, and (ii) how to learn population dynamics that balance intensification (generating good solutions) and diversification (maintaining variety). We make these ideas concrete with two complementary tools: one that improves existing solutions using information shared across the whole population, and the other generates new candidate solutions that explicitly balance being high-quality with diversity. Experimental results on Maximum Cut and Maximum Independent Set indicate that incorporating population structure is advantageous for learned optimization methods and opens new connections between NCO and classical population-based search.

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