And needless to say, they will not be able to accommodate all of these guiding principles every year; if you are hellbent on getting the top 4 Big Ten and Big XII teams in different locations and you want to avoid rematches, you might "accidentally" put a team in a location where they face a crowd disadvantage ... like #3 Kentucky playing #6 Illinois in Milwaukee in front of a crowd that had at least twice as many Illini fans last year.
I'm guessing they go in descending order of this list, but I certainly wish they cared about the crowd part the most!