I would just add this from Yae Miko:
As far as the world was aware, there were not two, but one. They complemented each other, and they rulled Inazuma jointly. So there was no need for the public to know the truth.
In fact, the name "Baal" and the title of Raiden Shogun was understood to refer to both of them - right up until -
Yae Miko said they were both twin gods. I interpret that to mean that they were both Electro Archon.
Makoto was mentioned to have established the Shogunate. Establishing the Shogunate and being the Shogun does not make you an Electro Archon.
That's just my interpretation.