No, if your traffic is stop and go, multiple signals, or you have to press brake often and can't just cruise at 50-70 without much braking..
Then that average is perfectly normal - 11 within city.
On motorway if you are getting 16.5-18 at 110 speed then that means engine is giving optimal output.
Those saying it should give anything above 13 within city drive in Islamabad-like conditions, very easy on the car and consumption... or don't measure properly.