A percentage that is adjusted upward throughout the swap should work.
What happens if Sam Seeder requests 40 packets incrementally over the allotted swap period, but Susie Swapper et al. only selects 15 of Sam's packets? Will there be a fail-safe once the swap is over, or nearly so, to make the "unearned" seeds available to all of the participants? I'm okay with Sam getting all of his requests but I can see how that could be a problem in this set up.
And how would the seeds Sam forfeits be determined? Automatically based on which seeds he selected first which would likely be his favorites? Or do we want to talk about that yet?