I have assumed you were working with a Stock M38A1 that will not adjust pivot friction per the manual but you should have a positive indication of wear either in the Pivot bearings or their races or their housings or the balls or their knuckle surfaces if you cannot attain the required friction.
Re-reading I am now thinking, based on the longer bolts you mentioned, you may have CJ2A or early CJ3A front axle knuckles. These knuckles require an equal number of shims top and bottom pivot bearing caps. The later CJ3A and on (Including M38/M38A1 used a thicker lower pivot bearing cap boss eliminating the need for shims on the bottom. The bearing caps themselves are the same thickness. The meat was added to the lower boss only.
Since you would need a guaranteed correct late axle assembly to measure the lower boss for comparison it will be easier just to add an equal thickness of shims to your lower cap and see if the tension increases.

Read the ("Note:) starting center of left column about bothe 2A and the 3A

M38A1 note shims item "E" only used upper.

CJ2A, note shims, item "14", used upper and lower CJ-2A