I'd say it's like "Heat". There's like 2 action scenes. (Although, granted, one of them lasts like 10 minutes.) And they aren't the best parts of the film. But it's one heck of a movie.
I'd put it on a list of "Best movie". But not "best action movie". Because the latter, to me, implies "best movie because of the action". And what makes "Heat" and "Ronin" great, isn't the action.
(That's why I went with "Raiders": What made it great, was the action.)