AHicks is on right track.Your issue lies in the motor controller. Have you looked at the owner's manually carefully to see if your PAS 1 speed can be changed? If you have the option to have 5 PAS levels or 9 PAS levels, the 9 PAS level may allow for a lower PAS 1 speed.
There's also a series of aftermarket controllers by KT. This conversion replaces your existing controller with one that IS adjustable, but it's not for the faint of heart. There's no directions, and there is no "drop in" kit available. You'll be required to use some resourcefulness to get through it. Depending on your DIY abilities, this kit would do what you are asking about....
Hub drive bikes typically have cadence sensing controller, different power levels are typically a speed setting. Will apply full power until that speed is meet. Changing gearing will not help you. You maybe able to change speeds settings for different PAS levels
There are current controllers that apply different levels of power to motor which gives similar result to torque sensing motor. Whether you can find one compatible with you motor will require bit research, maybe different forum that builds ebikes.