Steam heat is difficult to ‘balance’ but not impossible. What you are telling an experienced steam heating tech is that some radiators upstairs are too large and some downstairs not large enough and/or that the steam vents on those radiators aren’t set right for the timing of the air out of those radiators.
http://www.heatpro.us/steamtree/index.html
There are automatic vents available to better adjust the radiators when putting the right vents with the radiators doesn’t do the job. Sizing the radiators was probably done a century ago when the house wasn’t insulated as well, so they aren’t the right size any longer.
http://www.heatpro.us energy businessmen’s knowledge
Yes, you really have to find out the MAKE and MODEL to get good answers. There IS more than one machine made.