Hi, Terry. To know for sure, we need to know the age of the toilet. About 10 years ago, the government mandated 1.6 gallon per flush toilets. The old standard was 3.5 gallons. An amazing thing happened. They new toilets were not able to get rid of solid contents so you ended up flushing them twice or three times. Aren't you happy with the savings???
As the manufacturers have done more testing and research in the last 5 or 6 years, the designs have gotten better but still not perfect. You can research the latest designs and replace the toilet with a more efficient 1.6 one possibly. Or you might be able to illegally smuggle a 3.5 one in from out of this country. You will have to install it yourself also because it is also illegal for a plumber to do it. You can also support the bill that gets voted down in congress every year to reverse this and hope that the manufacturers pay for new tooling for larger ones again. Or you can just keep flushing twice.