So The Mouth is not a second in command... merely the tax/parole officer so to speak. Second in Command means that he (or she) has all the powers of the First and he is ONLY under the direct command of the Ruler as is clearly not the case with the Nazgul.
Quote:
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If Sauron has to place his will behind them for them to be effective battle commanders then he might as well command the forces himself. A commander who cannot function without the guidance of his superior is worthless in warfare.
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One of the Nazgul was in charge of the tower at Cirith Ungol. And Sauron's will penetrated through all his servants so that they fled (like orcs and the such) when they realised he had been vanquished. Yet Orcs do have their own 'will,' obviously (Clear example is Battle of the Five Armies). They fled because of fear of the Host of the West.