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Great argument WCH, and this seems to go well with my earlier thought.
He simply was not able to.
I disagree there Gwathagor, I am sure that if he could he would have made more Rings to have more Wraiths and I agree on the power part. Simply look at what happens in LotR - to have complete control of them he had to take their Rings away from them. Which means he wasn't that great to control thousands, he might not have really handled 10.
I am sure he planned it very well when he gave the Rings to others. He knew how much he could afford to do and this is how much he did. As such a 10th Nazgul might have been useful, but no longer quite possible. After all, Maiar have their limits too.
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“The invisible and the non-existent look very much alike.”
Delos B. McKown
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