It works the way it's set up! The fact that more people are not signing up to become donors is personal and no business of anyone other than the family. It took me twenty years to convince my wife to be a donor but she supports it fully today!
Leave it alone and keep the Feds out of the equation!
I'd hate to see my liver going to some alcoholic like Mickey Mantle who nearly drank himself to death, got a donor liver and died shortly thereafter. May sound harsh but I don't really give a shit! Too often, wealthy people get moved higher up on the list due to their notoriety rather than their need. As M58 indicated, it's a huge money business!