This is not a bug. Basically, you're confusing throttling states ("t-states")
with performance states ("p-states"). Don't feel bad; the names are a little
confusing (because changing t-states doesn't change the clock speed).
See this for more detail:
http://acpi.sourceforge.net/documentation/processor.html
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Only 2 out of 8 cpufreq throttling states available
https://bugs.launchpad.net/bugs/360336
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