Probably because your powertrain ratio is set up for high speed running vs slow. My old safrane was like that, 22mpg town and 36-38mpg motorway because designers assumed it'd be an autobahn car. still I managed to improve urban mpg to 28-29 even in freezing weather with a wai, sump heater and cruise. Engine is a Douvrin 2.2 with 12v head and 4000rpm peak torque.
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