Originally, I think, the rings were made for elves alone, not given freely. And when they perceived Sauron's intent they destroyed most of them, but Sauron was able to retrieve 15, the 7 and the 9, the three were never in his grasp. However, when the dwarven rings should have been able to be given to men, and maybe they were, what about the Mouth of Sauron? or The Captain of Minas Morgul? Perhaps they were given two of these. After all, one elven ring was given to Gandalf in a very flesh and blood form. Also Sauron's ring was kept by Gollum, Bilbo and Frodo. Now the Maiar/elven ring and hobbit/one ring combination may have a slightly different affect than a man/dwarf ring combination, but Sauron probably would have tried no matter what.
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