he just means the best teams not to win heir league go up
Teams who go 22-0 usually are in leagues with tanking teams, bots and managers who are not competing at all. So in my opinion it means that the second best teams from shitty leagues will go up. It doesn't say anything about the relative strength of teams with best records (i.e. a 18-4 team from one league may actually be a stronger than a 22-0 team from another league). In England bot promoted teams are typically taken from weak and non-competitive leagues