On many system 11 games Williams installed a resistor in series with the ground wire on the volume control. This prevents the volume from being turned down below a certain level (always too loud IMO). You need to remove that resistor and bypass it. Then you'll have full range of the volume. The Elvira manual shows the original factory wiring of the volume control and shows the value of the pot.
Gameshow_vol_res_(resized).JPG
Gameshow_vol_before_(resized).JPG
Gameshow_vol_after_(resized).JPG