I believe the Nazgul shared a certain amount of power, so if they were to create MORE Nazgul, all of the wraiths would be somewhat less. And Sauron and the Nazgul were kind of "connected" and were sustained by his power. How else would they have been able hold on and return to M.E. with Sauron? And even if Sauron wanted to create more Nazgul, he probably couldn't. He may have been powerful at the time, but not that powerful. He would also need hosts to sucumb to his power. He probably wouldn't use an Easterling, He might not trust them enough. But then he might add his power to the Mouth of Sauron, and created a being more powerful than the Witch-King. The Mouth of Sauron, being a sorcerer himself, might have made it possible using his magic together with Saurons, so not to "exaust" his master's power. Just a thought. Hope I helped.
Marroc
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Hail to the Lords of Angmar, for we are the true power!
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