[chrispedersen]

May I suggest the following?

1. Arrange the teams by the cost of their first picks, lowest to highest. Then, cases of ties on cost of first picks, arrange by lowest average total cost.

If matters are still tied, chose by lowest cost available pairs, with a null entry counted as high.

So for example
Team A: 5,3: 5,5: 3,7 Ave: 4.67
Team B: 6,4: 4,4: 2,7 Ave: 4.5
Team C: 4,4: 8,2: 8,1 Ave: 4.5
Team D: 2,4: 7,3: 8,2 Ave: 4.33
Team E: 5,5: 3,6: Ave 4.5
Team F: 5,3: 2,3: 5,5 Ave 3.83

So After arranging:
D, F, C, A, B/D

D gets his first choice
F as well.
C gets his second choice
A gets his third choice
Neither B nor D can be satisfied, all nations being chosen - they get random nations...