Combine Normals
Laying one normal map over another in an image editor flattens both of them. Two half strength bumps average out into one quarter strength bump, and the surface ends up softer than what you started with.
This combines them properly, so the big shapes from the base map and the fine detail from the overlay both survive. The usual case is a baked normal map plus a tiling detail map like fabric weave or brushed metal. Blend them once here and ship one texture instead of sampling two.
Do both maps need to be the same type?
Yes. Mixing a DirectX map with an OpenGL one gives you detail that lights backwards. Convert one with Flip Green first.
The detail is too strong.
Scale the detail map with Normal Strength before you combine them. Adjusting afterwards changes the base shapes too.
Related: Normal Strength · Flip Green · Renormalize