Cudgel Proficiency Bug?

I think the cudgel proficiency +2 to hit bonus isn't being applied correctly because I am able to low roll attack rolls a miss targets I should always hit.

I have 22 (+3) agility and cudgel proficiency, which should give me +5 total. If I understand the mechanics correctly, the lowest I should be able to roll is a 1 out of 20, +5 for 6 total. But, I am still able to roll 4 to hit and miss targets that only have 4 or 5 dodge value.

I have observed this using steel warhammer and steel mace. Character is True Kin Child of the Hearth with an optical bioscanner so I can see the AV/DV of my targets.

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