Burning Rangers. Holy shit this game ran at at a constant chugging framerate. It had advanced 3d graphics for the Sega Saturn like neat shading, transparencies, and effects, but as I recall it ran at a framerate in the teens. I guess Perfect Dark and Turok 2 were worse in one respect though- their framerate was so variable. At least BR was constantly slow. PD would have this crazy slowdown that made the game nigh unplayable. Anyway, it's interesting to look back on the game, it was an example of the kinds of risks that old Sega took that made them so great:
I also have to call out Sega for Gungrave on the PS2. If I remember correctly, that was actually capped at 60 fps but it would drop down to a quarter of that often. The game had destructible enviroments and lots of alpha/particle effects but the models were sub-Dreamcast level, disappointing at how bad the framerate was in that game.