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Edit
it's like a power saving setting , where the cpu works with low freq when not used by any speficic process that requeires high use of CPU and increase when you use a game or other app
Your 33% CPU utilization is quite simply all that it takes with your current usage. You can stress test (100% load) with tools like this: http://www.mersenne.org/download/
You can usually force this switch by switching OS Power Profile in Control Panel fro Balanced to High Performance if you prefer that.
The idea behind Intel SpeedStep and AMD Cool & Quiet is auto-downclocking the CPU when idle or low loads. 4GHz all the time is never needed for web browser related tasks for example. If the load does creep up high or spike, the higher clocks will kick in as needed. This helps you save power over time too.
If you want consistant full speeds and higher clocks, you'll have to enable that yourself (or rather disable certain features).
If you want control of your hardware, then take it. The way you described it, it sounds to be working as designed.
Features, as in things like speed step.
What you want the cpu to do is overclocking territory. If you want to overclock, then read up on it. No one here will be able to teach you how to properly overclock, without typing out a novel.
You can simply disable the power saving features and always run at turbo speeds.
You can change speed step and c states in BIOS and set power settings under Win OS to high performance.
Not technically overclocking but not standard operation, either.
You might as well learn about overclocking, as it will most likely be running with more voltage than needed.