The percentages for each non-playoff team should never be fixed, and I think draft spots 1-15 should ALL be based on a lottery. That means even the 15th placed team in the standings has a shot at perhaps the 9th or 10th spot in the draft (just hypothetically speaking).
How would this work? Easy, once the lottery for the first pick is made, the percentages for each team for the next pick is changed with the allocation of the winning team's percentage divided by the number of teams that are left picking. To understand me better, let's use the 2019 draft as an example:
1st OA - New Jersey Devils (11.5%) = 11.5%/14 = 0.82% added to EACH REMAINING team
2nd OA - New York Rangers (7.5%) = 7.5%/13 = 0.58% added to EACH REMAINING team
3rd OA - Chicago Blackhawks (2.5%) = 2.5%/12 = 0.21% added to EACH REMAINING team
Colorado at the 2017 draft should have received a significant lottery % increase increase in their lottery odds than team behind them (Vancouver). There was a -21 total points differential between 1st and 2nd that year. Arizona and New Jersey in the same year (3rd and 4th worst teams) should have both had the same odds %, they had the same amount of points (70). But, Arizona had higher odds because ROW's. I am proposing that the lottery should be points-based, not based on the standings.
I think this would not only help the teams that do "tank", or in better words, do not have a good roster lineup, but also help out the rest of the non playoff teams have a shot at not just the top 3 picks, but increasing their odds of moving up in the draft.
There will never be a time where there's just winners in the draft. It's just the way it is. But, I think there is a solution with tweaking the draft just a tad more like I have proposed.