Icarus was originally a throwaway - placeholder for another superhero who couldn't make the appointment. But as long as he was there, I decided to put him to work.
He's a stuffy, strict-constructionist sort. If he had a top-hat, supervillains would throw snowballs at it. And he's always bragging about how Commissioner Gorgon takes his advice.
And why not? He is Commisioner Gorgon in civilian life. It's true that Icarus is stuffy, but as long as he's stuck with the image, he has fun with it. In the battle for reputation, a concealed sense of humor is as much use as any other concealed power. Villains can't help setting him up for a pratfall, but they get captured surprisingly often when they do it.