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I think the main reason Dragon was excluded from any strongest equation is because he may have never showed what he is really capable of to the others (kind of like Blackbeard). He is using an army, and the leader of that army, that is enough for the WG to consider him as the biggest threat. But they may not have a lot of idea on how strong he is. Since only the people who are really close to him may have an idea how strong he is, and those people will likely to say nothing about him, it won't be surprising to see him appearing as maybe the strongest later on.
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