Well, dragons had other weapons than their breath. A dragon can crush armies with his tail, so probably also a one Balrog. And it's jaws can also be pretty dangerous, I believe.
And Dragons were in charge of Morgoth's armies in all battles after they were able to be. Glaurung in the Sudden Flame and in Nargothrond. There is no mention who commanded the armies in Nirnaeth or Gondolin.
And maybe Dragons just were not the best commanders.
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"Out of doubt, out of dark to the day's rising I came singing in the sun, sword unsheathing. To hope's end I rode and to heart's breaking: Now for wrath, now for ruin and a red nightfall!"
~Eomer
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