Maybe they qualify the draft order with a requirement that teams with at least 65 wins (just pulled a number out of a hat) will be considered for the #1 draft pick. I'm just making stuff up, of course, but short of doing something along these lines, you won't have any chance at forcing teams to "win as many games as possible." Sometimes, winning is not the goal. A rebuilding team is better off competing and putting players into spots and seeing who produces, who flames out, and who cares if they win or not. Or course, if they do win, great! But it is not the goal.