Rick, I've been misplacing the word 'donation' previously. Shame on me. Some of my comments in this thread have said 'donation' when I meant 'freebie', I think. (Freebies are things you agree to on a one-on-one basis to give to someone else.)
I think there should also be an option to allow for 'donations' so that you could send in any extras that you have. I don't have a solid opinion on how this should be handled because I don't want the organizer to end up with a bunch of 'donated' seeds and not know who to give them to. The donations might be something that could be offered in a thread and then people could claim them if they wanted to and the person offering the donations could package them into the appropriate number of bags and send them in. (That would make people used to piggy swaps happy, I think.) I do think it best to find 'homes' for the seeds before they are all shipped off to the organizer, where possible, but if the organizer/members want to establish a method where the donations are spread out to everyone, that could be done on an individual swap basis and make that particular swap all that much more unique!