[rhel9] doesn't boot to new installed kernel if version is lower than the installed one

Description of problem:
When using RHEL-9.1.0-20220501.0 and installing a new kernel that is lower nvr than the one in the compose, like kernel-5.14.0-78.test.el9. After reboot kernel kernel-5.14.0-78.test.el9 is not used.

Version-Release number of selected component (if applicable):
grub2-efi-x64-2.06-27.el9_0.x86_64

How reproducible:
100%

Steps to Reproduce:
1. install a kernel with lower nvr
example:
curl https://s3.upshift.redhat.com/DH-PROD-CKI/internal/513818341/repo-x86_64.repo > /etc/yum.repos.d/cki.repo
dnf install -y kernel-5.14.0-78.test.el9

2.rhts-reboot

Actual results:
it doesn't boot using kernel-5.14.0-78.test.el9

Expected results:
it should boot using kernel-5.14.0-78.test.el9