I don't think this passes rule no. 1. But then, I don't really like rule no. 1. I've always preferred complex and sympathetic villains over one-dimensional, outright monsters.
So I'm going to go with Robert E. Lee, someone who wasn't a bad man, and by all accounts was only acting out of a sense of loyalty and duty to his home. Nevertheless, he was most powerful figure in the Confederacy, which was the greatest threat this nation has ever faced outside of Britain and Nazi Germany.
You could also make an argument for Jefferson Davis, but I don't think he defined the Confederacy like Lee did.
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