Well, its complicated. Sauron is defintetly very evil and scary, but more in a 'back-of-your-mind" sort of way. Saruman is more despicable, less scary. Shelob is one of those more in-your-face scary, she scared the heck outta me while reading, Gollum is just pitiable, gross, and creepy, the Balrog is terrifying, the S-Bs are just annoying (why are they even mentioned as evil? Lobelia goes nice in the end!) and as other, Melkor/Morgoth and the Nazgul would cut it as scary. They're all scary in their own way (excluding the S-Bs, who I've grown rather fond of), but the Balrog and Shelob would defintiely cut it for me as the 'scariest'.
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