I'd see it like this:
capital=2 this place is the capital of a country
capital=4 this place is the capital of a region (etc.)
i.e. you can see the administrative importance, but there is no notion
of which entity the place is the capital.
capital=2;4 doesn't make much sense then.
You are ignoring that most (BUT NOT ALL!!!) country capitals are also
state (region) capitals.
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