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In Windows there's several volume controls. You can adjust the volume on the headset, in the game, and then you can also manage the game's volume (separate from it's internal volume settings) in the volume mixer.
Not to mention, depending on the specifics of your headset (which you didn't mention the brand/model) the configuration (for it) on your PC might just be different.
For example, on my old headset stereo sound sounded louder than surround sound at the same volume level. So if I was using stereo sound on a PS4, and surround sound on the PC and not aware they were configured differently I might say the PS4 is "louder".
Regardless I think there's about dozen variables you're ignoring and it's not clear from your post you've addressed them in your appraisal.
Yes, the PS4 can sound different. Typically for me the Xbox 360 and Xbox One both have voices lower than normal.
The point is that it's nothing to do with Steam. Your audio chipset will be what is turning the sound out, just as the audio chipset in your PS4 is doing the same.
You could try using an audio miser. You can one for a couple of sources dirt cheap these days. That will enable you to plug various sources into it and regulate the volume yourself, and the audio feed comes stright out of the mixer into your monitor or TV.
I do this, mostly because I have so many platforms, and partly because I have a fair bit of audio gear. It's very effective.