The same issue/problem exists for any flavour of PDF/X – they all require a specific/absolute output intent to be specified.
You could automate this process using say Enfocus PitStop Server. A hot folder could be setup with an action list to monitor for PDF/X-4 files using an output intent of GRACoL. If the PDF meets this criteria, it is moved to success folder. If the file fails, then it goes to an error folder.
It can of course get even deeper, you can make a second hot folder to monitor the error folder of the first hot folder – and then to automatically convert from SWOP to GRACoL using a devicelink profile and to change the output intent to GRACoL. I personally would not go this far as it may not be safe to assume that the file is actually in SWOP (a third hot folder would be used as an intermediate step to check for SWOP if this needed to be automated).
One idea of X-4 is that it is “safe” to supply the PDF with any tagged RGB/Lab/CMYK elements and they are all “fair game” for conversion (only really “safe” if using a properly configured devicelink profile, and then it still may not be all that “safe” depending on how you feel about the process). So if the output intent does not match, convert the CMYK content to a CMYK output intent that does match your output conditions.
Stephen Marsh