It's possible, but I'd consider it unusual.
What I'd do is get a set of replacement bulbs. You'll need them sooner or later anyway. Change to the new set of bulbs. If they work, you have a bulb problem. If not, then replace the ballast, and go back to the old set of bulbs. While the ballast may have low output, it's still bad, so it must be replaced.
Also, check the sockets and make sure they are clean and not damaged, although this is seldom an issue.