Earlier I used to work at a place which was 22 kms away from my place. The road was always jam packed and those 22 kms sometimes took me more than an hour!
On such roads, there is no point in revving the engine too hard. I upshift at around 2000 rpm. Hence, I used to get a FE of 14-15 kmpl. As I said, on empty roads, I get around 17-18 kmpl. On a mix of city and highway, I get around 16 kmpl.
But, these days, my workplace is just 2 kms from my place. The car does not even reach it's operating temperature! The route is not a main road, its an inner road and the car is always in first or second gear. Average speed must be around 5 kmph!!! Hence, I am getting a FE of 10-12 kmpl.