It does not know enough about the records in the context of the overall dataset:
- what is the data quality and to what extent do we expect a errors in some fields - how unusual are certain values such as names in the context of the dataset as a whole, e.g. some names would be very common in some countries but rare in others.
I've written in more detail about this here: https://www.robinlinacre.com/fellegi_sunter_accuracy/