It's basically a formality to say that we will never know for certain about it.
I personally think he was an Ainu, an especially powerful one, but apathetic to all of the political issues going around. I think he's comparable to one of the Ainur, the one of time, who stayed behind with Eru. He is essentially above such issues, and is content with living his life happily and peacefully, knowing that whatever evil may come towards him, he could probably get out of the situation.
The ring didn't have any hold over him because he didn't really want to change anything, and, as Zigur said, the ring caters towards an individual's desires, of which Tom had none.
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