The New Zealand Herald highlights the low rate of organ donation in this article. The scandal comes from the fact that many DHBs apparently do not consult the database, limited though it is, unless the family raise the issue of donating an organ. It does not take a genius to figure out that even a pro-donation individual may not have a pro-donation family. Also, even a pro-donation family may not know of the preference of the person - and so would tend to err on declining to donate. There was this suggestion for improving rates of election to be a donor:
"They ask, donor, yes or no. If they put a question before that, 'If you need an organ to live, would you accept one', if they tick yes to that, they are hardly likely to say no to the next question."
Almost certainly true.