Try to find a better estimate for the priority needed for a free transaction within the next few confirmation targets, or just fall back to add a fee if unsuccessful.
Something similar should probably be done with the default fee, since the default is usually much lower than what estimatefee 2 recommends if estimatefee 1 fails. On the other hand estimatefee usually recommends a much higher fee than actually required for the confirmation target, and this may lead to artificial fee inflation. When a transaction using the recommended fee/priority doesn't go through in the first block, there is usually something else, e.g. individual miner policy, preventing it.