I have taken this problem as far as I can. I have duplicated Gerry's results.
I can control all my locos with the JMRI monitor "vthrottle" if I change it to 28 speed step mode from 128. But, I can't save that. Each time the loco is released and then selected again, it's back to 128 speed steps and can't control my loco until changed again to 28 speed steps.
Like Marc, I could find no way to change the WiThrottles to 28 speed steps, and they can't control my locos.
I would like JMRI throttles, including WiThrottles, to have the option to set and save each loco as 28 speed steps (and probably even 14 steps) instead of 128.
I'm very reluctant to change out about 10 good decoders, and throw away about that many perfectly good, unused ones. I can't believe I'm the only JMRI user or would be user with this problem
If JMRI's throttles don't get 28 speed steps added as an option, then I'm going to make an inline filter to convert RS-232 128 step speed commands to 28.
My thanks to everyone who helped find what's happening. It sure had me confused! It's a relief to understand what's wrong.