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You need a complete supply to demand chain for cargo to work. If there is no delivery to a town that demand the final product you're going to have empty vehicles.
Check out the Cargo Guide for the detailed low-down.
Even if you have enough transport capacity with the amount of trucks you have now, the demand side (where you deliver) probably wants a higher delivery frequenty. This has also to do with the amount of storage on the delivery side. When factories / shops are small, they can't handle a big amount at once on delivery.