How many sheets did you measure? Gordo alluded to less than optimal conditions. Could be something in the printing of the particular sheet. Measure a number of sheets and average the measurements together to get a better idea of what the press is doing. This will smooth out specific spurious measurements and hiccups.
You can change how the press is printing in any of a number of ways. Increasing the pressure of the impression cylinder is the simplest. Change to a more compressible blanket. Change to a blanket with a different surface texture. A different paper will exhibit different behavior. Changes in the pH and conductivity of the fountain solution will alter your result. Turn down the water. Increase the speed of the ink fountain roller. Change the press speed and see if the ink transfer characteristics change. Increase the blanket and/or plate packing by a thousandth. Try an ink with a lower tack. Change the temperature of the fountain solution and/or the roller chillers (if the press has them).
I've observed presses printing with very low dot gain, so I don't consider what you're seeing unusual. View what you're doing, though, as profiling the characteristics of a system, not a press. You are documenting the physical and chemical interplay of a combination of ink, water, paper, blankets, pressures, temperatures, humidity, et cetera.