Hi
could be a number of things here. Depending on how familiar you are with the working of a boat.
firstly, I’d be almost certain that at 21 mph gps, you are on the plane, all be it at the lower end of things. Especially at 4000 rpm.
you likely have trim tabs on that boat. Are you aware that once on the plane, if they are still both fully down, you will have some serious drag and drop in potential top speed. Your whole hull from the bow back will be dragging in the water.
as said already. Do you know how to trim your boat ? If I have my outdrive all the way down to plane...it’s ok...but once on the plane, you want a level or just more trim to be comfortable at cruise...but for top end performance, you need to be trimming the drive up a fair way to lift the hull out the water for less drag.
if it’s the case that you have the tabs right down and the drive right down...you’ll never see anything more than what you are getting now. Makes a huge difference, getting the trim of a boat right. Perhaps an extreme example, but it’s probably close to a 15+ mph difference on my boat. Not sure how much rpm difference, but it will be at least 500/600 or more.