Sometimes, this can happen if the decals have suffered water damage or been exposed to high humidity (activating the adhesive).
If you soak the decals for an extended period (as mentioned above), you may lose much of the adhesive that makes them stick to the model's surface.
Normally. if this happens, no amount of setting solution will help the decals stick (with the exception of Gunze's Mr Mark Setter, which contains a mild adhesive) if there is insufficient adhesive.
If you are able to get the decals free of the backing paper, you may wish to consider applying a very thinly diluted solution of white glue to the decal location before applying the decal to help it stick.