I don't think the dragons were created as a mockery to Eagles, although Morgoth certainly feared them. Remember, for a long time the only dragons existed were wingeless. Not until the War of the Wrath was winged dragons in war. I think Morgoth simply needed servants able to create havoc on their own, and did not need an army to back them up. Also dragons were by far the toughest creatures to kill that Morgoth had in his army.
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