The setting that is in the decoder is between either14 speed steps or 28/128 speed steps, accepting either from the command station in the latter case.
There is a setting in Digitrax command stations that defaults to the number of speed steps for "new" addresses when acquired by a throttle. That is set by the combination of Op Switches 21, 22 and 23. See manual page 47 (pdf page 48) of
https://www.digitrax.com/media/apps/products/starter-sets/zep/documents/ZephyrManual.pdf .
It sounds like you somehow have those op switches set for 28 speed steps. The default setting is for 128 speed steps, which is Op Sw 21, 22 and 23 all set to "t" ("thrown"). But, if Op Sw 21 gets set to "c" ("closed"), then it will be in 14 step mode, and if both Op Sw 21 and 22 get set to "c", it will default to 28 step mode.