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I think we're looking too much at the political here. Look, Sauron was very good at manipulating others into following him, like for instance the Elves of Eregion, the Numenoreans, and the Haradrim and Easterlings. He filled them with a radical allegiance which was hard to break. So if we look at the facts and not too much outside of the box you get your answer. But that's just my knowledge of this subject.
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