While I understand the frustration of only having a limited number of packs (especially if say you have 11 players and can only reward 10 of them; ouch my life) , it's mostly to encourage multiple smaller groups so more people have the chance to earn them and drive competition; rather than everyone go into a single large group and get free wins and free prizes all of the time. (Though most servers probably only have one or two groups anyway since so many are dead, that logic for higher population servers makes sense)

Aside from packs, players do already receive rewards for each round they participate in in the GNW automatically through the mail. Asking for the packs which are meant to be a bonus a leader can reward to their players to become a participation reward instead would kind of remove the point of the participation rewards already in place.

It'd make more sense to ask for an improved participation reward, which I would support. Possibly throw in some fragments in the round rewards to maybe let them collect enough for a seal scroll if they participate consistently through the week?

Or as Garv mentioned a consolation prize at the end of the week to everyone else would work. It'd be nice if that could be automated to receive something if you didn't from the leader rather than giving the leader a hundred more packs to think about and hand out; though with the way packs are handed out and not on a timed schedule I could see that being more difficult to implement than just boosting the pre-existing prizes that everyone gets already