There can be many reasons for partially filled tapes:
Multiple media servers
Multiple pools
Multiple retention periods.
One way of reducing number of tapes is to implement media sharing.
Extract from Admin Guide I:
Media sharing provides the following benefits:
■ Increases media utilization by reducing the number of partially full media.
■ Reduces media-related expenses because fewer media are required and fewer media are vaulted (NetBackup Vault option).
■ Reduces administrative overhead because you inject fewer scratch media into the robotic library.
■ Increases media life because media are mounted fewer times. Media are not repositioned and unmounted between write operations from different media servers. Reducing media mounts requires appropriate hardware connectivity between the media servers that share media and the drives that can write to that media. Appropriate hardware connectivity may include Fibre Channel hubs or switches, SCSI multiplexors, or SCSI-to-fibre bridges.
Also read up on
Maximum number of partially full media property for selected pools.
AdminGuide I Windows
Admin Guide I for UNIX