Here are a few things to check:
1. Your crush. If too coarse, all the starch can't gelatinize, or it takes a long time to do so. I've seen some "crushes" on here where there are intact barley kernels making through. If you don't get the husk removed and the inside crushed, it's not going to convert.
2. Mash temp. If it's out of the range of about 148 to 157, you're not going to be as successful.
3. How is your water? A good mash needs a pH in the range of about 5.2-5.6; if you're very much outside this range, you're not going to be as successful. If you're not paying attention to water (perhaps just using tap water w/o knowing its composition), then I'd bet this is playing a role.
4. I found my efficiency rose when I stirred at 15- and 30-minutes. I don't use a violent, splashing stir, just trying to rehomogenize the mash. My efficiency shot up when I did this.
5. Make sure you're mashing long enough. I'm using a somewhat coarse crush (.035 on monster mill), compared to the .020 I used with my barley crusher. When I did the .020, I had most conversion done within 15 minutes, as the starch in the smaller particles gelatinized quickly and was made available to the enzymes for conversion. For instance, if I was expecting a pre-boil gravity of about 1.054, I might be at 1.044-1.048 within 15 minutes.
However, when I went back to .035, I was initially shocked to find that at 15 minutes, I might be about 1.018, maybe 1.020. I stirred, stirred again at 30 minutes. By the time I got through with a full hour mash, I was where I needed to be.
So, if you're mashing for 60 minutes, stir well and try 70 or even 75 minutes, see if that makes a difference. I've become less concerned about just cutting off the mash at 60 minutes, I'll go 70 or even a bit longer.
6. When you check your preboil gravity after lautering (or if BIAB, draining the bag), you need to stir the wort very well. I've found there can be strata within the wort, the sugar seems to be more concentrated at the bottom. I find this in the mash too--the sugar was concentrated in the grain, which of course sits at the bottom of the mash tun with liquid on top of it.
Anyway, good luck!