I assume you use those lights over a 40 breeder tank. That tank is about 17 inches high, and you probably have about 2 inches of substrate, so the lights are about 15 inches from the substrate. The two CFL bulbs in those reflectors should give you about 35 micromols of PAR under each of them, but two isn't enough to cover the 36 inch length of the tank. The T8 bulb should give you about 15 micromols of PAR under it, but one bulb won't cover the whole 18 inch front to back depth of the tank. So, you very likely have low light that varies a lot over different areas of the substrate.