I think they should enforce that, but why not make it so you can change your social policies around? Maybe for each one you change you have one turn of anarchy so if you change 8 of them then you get 8 turns of anarchy. This would be nice because some of the early ones are useless if you change game plans part way though.
Problem with swapping policies is that unlike the civics of Civ 4, policies are a mix of ongoing benefits (like civics) and one time gifts (golden age, two free policies, two free techs, etc). This makes swapping around problematic.
I could see folks swapping policies six at a time to fill out entire policy branches, collect the one time benefits, and then swapping back. Sounds abusive and exploitative.
I suppose if one made certain policies interchangable, and others not, and re-ordered the pre-reqs in the policy tree, it might be workable ...
The whole issue of policy cost being tied to both number of policies in hand AND number of cites is I assume to generate a brake on expansion. Since more cities means more sciopulation and more gold, there needed to be cost to expansion. That turns out to be happiness and culture cost. The culture cost can be avoided by puppeting, but then you can't control the building of happiness buildings and so the happy restriction is more weighty in puppeted civs.
One could ask, should culture cost scale with number of cities at all? Why not just have a fixed price for the nth culture policy, just like each tech has a fixed research cost? Seems to work fine in the natural science tech tree (vs the social science tech tree, aka culture policies).
Maybe 1upt requires more limits on expansion and production than in previous civ versions, and culture policy is it (in addition to happiness issues)? I'd say that puppeting nerfs any culture policy limit on how many cities are out there, but I guess since the puppets don't make units, maybe that does still reduce unit spam. And you can't focus the puppets on culture, so the puppets contribute less to that.
If we think that culture cost needs to scale with something other than nth policy, what could it scale with? Well, it could scale with turn number, with techs or tech eras, with population, with gold production, with science production, etc, rather than with number of cities.
With the civ related scalers (techs, science rate, gold rate, population) the idea is that a more complex civ has more cost to implement policies. Problem is that all of these except for number of techs (or number of beakers in known techs, so that many low techs not worse than a few big techs) can be artificially manipulated, and isn't that what we want to avoid?
So we could scale policy cost with the total cumulative beaker investment in science (known techs plus current tech investment), established either at the start of working on next policy or at the end of it.
Or we could scale policy cost with the turn number.
In either case, policy cost only goes up over the course of the game, except for rare ingame modifiers (Redentor). While that might seem bad (what if I lose a city?), any system that allows the cost to fluctuate can be exploited. And you don't get science discounts if you lose cities, so why should we expect to get policy discounts? Just don't lose cities!
So my thinking is either
1. Just have policy cost increase as a function of number of policies.
2. Or have policy cost scale additionally with turn number
3. Or have policy cost scale additionally with tech investment. This latter might be a usefull balancing feature ... if your tech rate is slow, your policy rate will be faster. Oh gawd ...
it's a psuedo SLIDER!
dV