Ok that helps a bit. I am guessing it is a small low wattage pad? Like a 4w perhaps? Pads are generally controlled with a thermostat it is a separate unit altogether. They come in two basic types on/off that works exactly like most home thermostats. They are ok not stellar the better types are proportional they 'feather' or 'flutter' the power so it never runs maxed out or never truly all the way off. This keeps the temperature of the pad at a particular point rather than running high temp then off.
Lets measure some points specifically.
Move the substrate aside and measure directly over the heat pad.
Generally speaking a pad should never be not controlled by a thermostat. That said some of the modern small pads are so low heat they can be used with no stat as they rarely get much over mid 90šS and running through a glass tank often the temp is in an acceptable range.
How are you measuring your temps?
You need to measure the air temp where it is not effected by the lamp or pad.
What is the temp in the room?