This is working the way it is designed. If you are backing up online pool to offsite pools, when the copy is complete, the tapes should be sent to offsite EVEN if utilization is just 1%. These are your DR tapes.
The same is true for DB backups. DB backup tapes are sometimes just 1% utilized BUT these needs to be sent offsite for recovery as you cannot append DB backups.
Having said this, are you separating storage pools by category, i.e. Unix, Windows, SQL, Oracle, etc? If you are, then be ready to accept that you will really have low utilization rates. If you are not, check if collocate by group is set.
In my environments (yes, environments as I have gone through 30+ environments) I separate storage pools for faster backup and quick recovery. At times I even do collocate by node or group to get even faster restores. However, these setups are coupled with hefty tape drive environments from 16 and up.
I always say: "tape is cheap but the cost of going out of business is expensive".