There are two ways that Firaxis could address the design that would make sense: 1) Get rid of all the 1-turn cards like Professional Army (which is bad design per se), thereby removing the incentive to swap cards on alternate turns. Then simply remove the card-swapping restriction. 2) Give the swap a timer, which you can reset with a gold payment, like at present, but removing the method of swapping civics. Maintains the "cost" aspect, but it's inferior to Option 1 from the perspective of design elegance. Either way, from a flavor perspective, the current system is inane. You can observe any present or historical political administration and note regular changes in policy and preference that correspond to "swapping policy cards". But applying a bunch of minor Band-Aid changes to fix "exploits" that are actually just using the system as intended is plainly ludicrous. And stems from a position of "how dare people play the game in a way of which I disapprove?!"