If you add up all the individual core frequencies and divide by 4, you get an average of about 2.8ghz which is similar to what Windows is reporting. To save on power when not under load or if temperatures hit a certain point, the CPU will pull back its multiplier and voltages. I'm guessing that the two cores reporting 1.9ghz are brought there because that's what it takes to bring it to 50% load to match the two higher speed cores. If your cooling is decent, turn off Cool'n'Quiet or any other power-saving technology in the BIOS, set Windows Power Options to High Performance, and all cores should run at 3.9ghz 100% of the time.