Can you imagine owners agreeing to something that could mean their team start the season with literally no chance of making the Super Bowl?
I can't.
I think they should do a lottery in 4's. IOW, the teams with the bottom 4 records are in a lottery for the first 4 picks. Then the next 4 etc.
The other option is you have a lottery for the next ten years so teams know before the season who they will pick.
That way if you pick 1st one year, you pick 32 the next etc.
There is nothing either good or bad, but thinking makes it so.