Better characters in terms of implementing the rules and protecting the village/world?
I am going to answer this based on their supposed roles in the story.
Because of their similar positions I think Hokage did a better job.
Kuzan joined the villain's side and now he is BB's 10th captain.
Yes, he is a complex character and the only admiral I like in OP.
Likewise, Madara-Hashirama dynamics were better than Kuzan-Akainu dynamics.
Admirals are second fiddles in the story, but Hokages were different.
I dont know, how can I say Kuzan or Akainu (ADMIRAL) is better than Naruto (HOKAGE) as a character?

That's why he is not on the list.