I have a problem where I want to allocate demand pts equally across a set of facilities. For example, I have 10 volunteers and I want to allocate them to 7 sites and I want all sites to have either 1 or two volunteers. My impulse was to do a maximum capacitated coverage with capacity set at 1 and then take then assign the remaining volunteers using a maximum capacitated coverage with capacity set at 1 again, but I'm fairly certain this is not an optimal (or even a very good) solution. I am using ArcMap 10.1.
Since you have more volunteers then facilities, and your only criteria happens to be assign to closest, then your two step approach will work (optimally) as the volunteers will be assigned to their closest available site and each site will have at least one volunteer.
If you try setting capacity to 2 then all volunteers will be assigned but there is no gurantee that each site will have at least one.