It's Bastok. The entire time I was playing they were in last place most of the time on many servers, and while it made it to second sometimes, it was hardly ever in first... It made it really hard to get CP items, but that's how it was.
If you need Windurst fame, it might be better to do it the hard way than to wait weeks or months (depending on your server) for a chance to do it the "easy" way. Personally, I suggest farming quest items in Sarutbaruta. The Mandies ther drop three items that can be turned in for Mandragora-Mad
(including Cornettes), the Rarabs drop letters for The Postman Always K.O.s Twice
(the ones in East Sarutabaruta drop a different letter than the ones in the West). The Mandies there also drop buds for Teacher's Pet
, but you'll need to farm bird feathers or buy them to turn in along with those. Finally, if you have the available inventory space, you can turn in Crawler Calculus for Creepy Crawlies
If you have a lot of patience, I'd also suggest Something Fishy
. It's a fast way to build Windurst fame, but you'll need a fishing pole and bait (preferably a Sabiki Rig), and it requires a lot of zoning or warping. It follows the same principle as killing Bubbly Bernie for fast Bastok fame, but it's much less of a headache.
Anyway, I hope this helps.