Bainite may only form at a right time at a right temperature. As like martensite, banitic transformation is a rapid transformation, but not as fast as that of martensitic transformation. Depending on the composition of the steel, intra/inter-granular bainite may form.
Perhaps in your case, the quenching process is not rapid enough, or slow enough to hinder the transformation of bainite. Tendency of bainite transformation increases with decreasing carbon content in carbon-steel under quenching process, as the time required for bainitic transformation decreases with lower carbon content. Other alloying elements may also affect this.