I think 18-21" is a normal vacuum to have on a stock cammed idling engine.
Low vacuum can be caused by worn piston rings, lousy engine tune, wrongly installed camshaft, leaky valves or guides, just to name some.
Most issues can be found just by reading the vacuum gauge.
Vacuum gauge 'issues' Charts can be found all over the net.
My own 318 idled with 21" in Neutral and 19+" with transmission in Drive.