The free agent draft is random, and reverse ordered. The worst picks in round 1, are the best in round 2. Every team has opportunity to develop...not just the worst teams.
You can develop a perennial winner from a losing team...it just takes time, good scouting, good solid drafts, and no foolish trades.
I have developed winning teams from terrible "orphan teams" and had fun doing it.
Teams that are perennial losers, often draft poorly, trade poorly, and don't do the scouting that is needed to develop a team. That development is a large part of the fun in playing PB, NOT just one year runs for the titles. To keep rewarding incompetence defeats the purpose of playing.
My opinion is keep the Free Agent draft the same. Losing teams have enough benefit in the rookie draft...which is where the key development drafting is located. The free agent draft is fillers for your year to year roster needs.