On all of my own iDevices Iphoones, iPadss, etc.) the "lowest" volume is totally silent. One "click" up from that is very, very quiet. Is taht what you mean by your post? And are we talking iPhone, iPad? What version of device and what version of the OS?
If you are talking about iPhone and the Speaker function, then yes, it's loud, but it's intended to be so that you can use it as "hands free" with the phone on a table, or in a holder, at a distance from your ears. If you are holding it to your head, don't use "Speaker" option. That is much quieter.