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That's a good question. That could either mean:
a. He is stronger than Makima as an individual without factoring in the abilities of their contracted devils.
b. His contracted devil is somehow more OP than Makima's...
c. He has the highest mission completion rate among the devil hunters and therefore is considered the "strongest" due to his consistency.
d. He's one of the longest-tenured devil hunters and due to his seniority, he's referred to as the "strongest" as a sign of respect from his juniors.
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"When there is evil in this world that justice cannot defeat, would you taint your hands with evil to defeat evil? Or would you remain steadfast and righteous even if it means surrendering to evil?" - Lelouch vi Britannia as Zero.
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