trans shifting to 3 or higher while coasting in low speed is normal, its to give you a comfortable ride. Your shift rpms are quite high for 20% throttle, at 20% the transmission should immediately do the 1-2 shift at about 10 or 15 km/h below 2000 rpm and all other following gears should be shifting at about 2000 to 2200 rpm.
Seems like your speed governor is sticking.