That is actually pretty normal.
There are a lot of other things that your CPU is doing. Depending on your exact hardware, that number may be higher or lower.
When you play an on-line game like GW, you also have some of the CPU tied up doing things like running the network connection and USB ports. If you have on-board sound (or a lower-end sound card), part of the CPU is busy controlling that. If your graphics is on-board, that is also taking up some of the CPU.
Then of course you have the "housekeeping" tasks that all systems have. Controlling memory, controlling drives, managing the cache file, even running Windows itself takes some of the CPU.
There are some ways to reduce that, but never completely eliminate it. Getting a NIC with it's own CPU (like the Bigfoot Killer NIC) can improve framerate and performance by 3-10%, but are you willing to spend $300 just for a network card (although it has it's own 400 MHz processor, and it's own USB port to run USB headsets without tasking the main CPU)? And you can get a sound cark like the X-Fi, with it's own dedicated CPU. This will give you another percentage point or two in performance.
10-16% CPU useage for "housekeeping" is not all that unusual. In fact, it is right around average to be honest.
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