According to IMDB, Ken Kitson did not get credited regularly as !st Policeman until Series #25 and "Jurassic No Parking". Prior to that it was a bit haphazard sometimes with both of them being designated "Policeman". Maybe in very early episodes in which they appeared, first who showed or first who spoke was specified as 1st Policemen. In this context, Tony Capstick's character playing second fiddle is maybe a wee bit irrelevant.
Well, it obviously was not order of speaking. Maybe order of appearance or simply haphazard. My main point was that how the characters interacted (Capstick's being less forceful a personality) was obviously irrelevant to how the credits were designated at the time.
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