It's a hard question to answer. Moss i the obvious answer.
Jacky Ickx was twice runner up... Of more recent drivers - I an pretty sure both Alessandro Nannini and Robert Kubica would possibly have landed top line F1 drives if it were not for their accidents, and from there I think both would have been capable of winning a WDC.
That does not necessarily mean any of them are the best ever not to win a WDC though.
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