It should be getting around 26 mpg in light mixed driving. I'd be checking the wear items first like air filter, timing belt/chain, spark plugs, dirty injectors with bad spray patterns, vacuum leaks and oil in the antifreeze/overheating = toasted head gasket, brakes dragging. I've never seen fluid changes to synthetic make much of a difference. One of the biggest improvement I get on my gear is from airing up the tires. I could not get my '04 FXT above 23 mpg even using COBB tuning. I've learned a ton here and would have probably been able to get a bit more out of it but I really liked the acceleration too much to stay out of it so 320-350 miles to a tank was common for me.
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