Because temperature around the thermostat has already reached 22 degrees. This is quite normal in a 2 storey home where the 2nd level is usually a couple degrees lower than the main level. To fix this problem, you can:
1. Keep your furnace fan running all the time, this keeps the air well circulated around your home, the downside is cost.
2. Adjust the dampers and registers for duct in problem room(s)
3. Install booster fan in the duct.
My ducts don't have dampers, so I close some lower-level registers and registers in rooms that we don't frequently use, and I take down all window screens to allow free movement of air and to reduce condensation on the windows.