Even in the times when there was only one champion there were often other fighters who may have been better but who either never got their hands on the title or who had to wait a few years before doing so. So what examples are there in history of fighters who were more than likely really the 'man' in the division but didn't hold the title?
Some candidates:
Light-Heavyweight -1945-1951 Lesnevich, Mills and Maxim were all champions but Ezzard Charles and Archie Moore were more credibly the best.
Middleweight -1945-1947 Zale and Graziano champions but LaMotta and Cerdan probably better, maybe Burley also.
Welterweight 1938-1941 Armstrong, Zivic and Cochrane the champs but Cerdan was perhaps the best. Both Burley and Holman Williams also strong candidates
Lightweight 1956-1962 Joe Brown reign but was Duilio Loi really the best?
Some candidates:
Light-Heavyweight -1945-1951 Lesnevich, Mills and Maxim were all champions but Ezzard Charles and Archie Moore were more credibly the best.
Middleweight -1945-1947 Zale and Graziano champions but LaMotta and Cerdan probably better, maybe Burley also.
Welterweight 1938-1941 Armstrong, Zivic and Cochrane the champs but Cerdan was perhaps the best. Both Burley and Holman Williams also strong candidates
Lightweight 1956-1962 Joe Brown reign but was Duilio Loi really the best?
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