I'd say its because every country only has a very limited supply of top level sports people - and all of ours play other sports. People with the natural ability, reflexes, vision and freakish athleticism of say Carter, the Smiths, McCullum or Shaun Johnson could have been our international football stars. Instead they (and most other high-level NZ sports people) chose other sports. Mainly because all their top level sporting friends did the same, but it is also that they are better pathways to professionalism.
You can coach the shark out of the next tier of sports people all you like, but they aren't ever going to be as good as the best of the best.
How do you change that?
Maybe the backs, but our attackers (excluding Wood) are too small to play rugby.
Edit. Sorry just seen this covered by someone else. As you were.