Level scaling Issue

Hello everyone, i am here to suggest staff a new look at pokemon trainers and their pokemon levels in johto region, as from the experience i got since gym 3 in johto i found out that level difficulty jumps go from way to the top to way down or the opposite, for example you duel the policeman before entering the city with growlithe level 20 and in the underground of the same city you duel multiple npcs with 5x28pokemons making this a huge difficulty jump that makes little sense.(was told to report in this section)