It's the reality of statistic, even though there are various reason why transactions per block seems low :
1. SegWit adaption is still slow
2. Exchange and services these days "batch" their transaction rather than make a transaction each time user made withdraw request
3. When we're talking about TPS, we assume transaction size isn't that big (Use SegWit, 1-2 output & 2-3 output), but the reality average transaction size is bigger (either because don't use SegWit, have more input/output or use scriptsig)
There is a false narrative that is always presented about lightning that it is intended to be the only solution to scaling which is false.
Bitcoin must scale in many ways -
Unfortunately, most people are narrow minded, think only 2nd layer or big block is the solution of scaling problem.
Don't forget Taproot, which is improvement of MAST.