First you want to put the numbers in order 21,22,25,26,27,28,29,31,32,35
Then separate the ones above the limit from below the limit
Above-31,32,35 (a total of 3)
Below-21,22,25,26,27,28,29 (a total of 7)
.5 is equal is 1/2 and over half are below the speed limit
So the average speed is most likely below the speed level
P.S. the average speed is 24.4