Thank god that strength isnt the all decisions factor otherwise we would reach stupid power level territory ala DBZ quite fast. Its nothing more than a number to measure how much of a threats to the WG this person is or can be. Strength plays a role, but so do knowledge or character traits like the ability to lead/convince people. Dragon is likely the most feared person because he combines power, knowledge and is leading movement that will confront the WG very soon.
They are the ones paying for the bounty so this is the most important part actually.
I always wished this was the case, as it would make the most sense, but sadly it's not. It's the opposite of what you're describing. How much you annoyed the world government plays a small part, sure, but it's mostly related to the strength of the pirate.
They are the ones paying for the bounty so this is the most important part actually.