1999 Ford Contour bad gas mileage

I only do stop-and-go city driving, mostly making two short trips daily. I am getting 9-10 mpg, very far below EPA city standards for this car. Car starts easily, and responds quickly. No coughing, no stalling, no smoke, no smell, no funny noises, no missing, and no trouble codes. Using regular gas. No jack rabbit starts. Just a smooth running car.

1. New carb air filter;
2. New fuel filter;
3. Recent Oil change
4. Tire pressures good
5. No dragging brakes
6. PVC okay
7. New thermostat
8. No transmission issues
9. No visible fuel leaks or fuel odors.
10. Cat. Converter seems okay
11. Idle rpm is steady

What ails this car?