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Sure he's under Shanks. Shanks is one of the 4 strongest characters, able to compete against monsters like Kaido and White Beard without having a devil fruit of his own. When Mihawk is in front of White Beard, all he can do is throw a slash attack and say "i want to measure how far he is from me in strength", and then it's blocked by one of White Beards crew. Shanks had no problem casually strolling onto White Beards ship and wasn't afraid when White Beard took a swing at him. I think that shows the difference in their power.Mihawk isn't under Shanks though, as far as we know. That's the main difference between the two, but there's no reason why Zoro, Sanji, and Luffy can't be rivals, especially for fun or out of brotherly rivalry.
Also remember that he was a rival with Shanks well before he became a Yonko, he stopped fighting him when Shanks lost his arm, when he didn't seem to be a "huge" pirate yet. That's 13 years where Shanks becomes much much stronger to the point the World Government pisses their pants when he and his tiny crew join a battle.
They were friendly rivals in swordsmanship (we know it was friendly because Shanks doesn't have any injuries from those battles), but there is more to strength than skill with a sword. I'm sure Mihawk is a better swordsman than Kaido too, but Kaido likely beats him in a tough fight. And the same is true of Shanks.
I don't think One Piece is a "power level" manga like "Dragon Ball" is, but it still does have power levels to explain the makeup of the world, and in the context of Oda's story, it doesn't work if there is just some dude who is as strong or stronger than the Yonko. If Mihawk is Yonko level, he has no need to work for the world government as a Shichibukai.
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