From the comments: So the debaters are pre ranked and seeded in prelims? If so what is this based on?
You need to apply to qualify for NDCA; you get in by accumulating certain points during the year. It's complicated, but it's on their website. This provides a presumably neutral ranking of debaters across the country, despite where they debated (it doesn't necessarily have to be big bid tournaments). The resulting rankings are numerical, and we can list the entrants to the tournament in order as a result. Then you break them into 4 equal packages. And there you are.
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