" If you set a flat rate people would get very few seeds by the end of the swap. "
I guess I'm still thinking in terms of a longer time period for the swap, such as in the Piggy Swap. The advantage to that would be that someone who for whatever reason was unable to participate in the first week or so of the swap, would still have the ability to get in on the action and make up for lost time. (I do think it's best, though, that everyone would have to "join" before the beginning of the swap.) So, if the trading ran for a full month, at 5 packs/day each person could be receiving 150 packs. Or the amount per day could be raised somewhere along the line, depending on how things were going.
Just throwing the idea out there; it sounds like the current swaps are going great!