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There are actually ratings that go above 20 - start a historical game with Gretzky in his prime and you'll definitely see some. But they're rare and only for exceptional cases. It's also possible, but very difficult, for players to develop in a way that results in a rating going past 20. The exact effects of a 21+ rating varies according to the attribute, but for the most part they're not as linear as the sub-20 ratings - going from 20 to 21 will have a bigger effect on player's performance than going from 19 to 20.
As a practical matter, players in the starting database don't ever get ratings higher than the mid/upper 20's. The remainder of the scale is there to handle effects (such as tactical roles) that may increase them further.
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