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That also might explain why Sauron never made any attempts to make addional mortal/dwarven rings on his own. He made the One Ring from scratch himself so he had the skill, plus he had the original mortal and dwarven rings as protoypes so technically I don't see a reason he could not have done it (though it is also likely that the nature of the One Rings spell was such that it could only control those rings in existence at it's creation, not rings made after it; that you couldn't add more retroactively). Heck depending on how much of Celembrimbor's work Sauron was privy to; he might have known enough that, had he had the power and the spell allowed it, he could have made addional ELVEN rings, and see if he could find wearers among elves less "pure" than those who held the originals, or (if one of the theories is accurate) among particualry clever and loyal Orc captains.
It also occurs to me that extra mortal rings would have given Sauron an addional advantage beyond an unlimited number of wraiths, it could have given him an indefensible method of dealing with any and all opposition. As far as we know all of those who took the mortal rings did so willingly, but I'm not sure this is a prerequisite for the rings power and corruption to work. If he had unlimited mortal rings it would offer him the option of forcibly bonding anyone who was too much trouble to him. Capture the individual, force a ring on his finger and then either keep him chained up until the corruption did it's job or stab him through the heart with a Morgul blade (assuming my theories are correct and 1. the blade part of a Morgul knife can be replaced for additional uses (so they aren't quite as rare and valuable as they seem) and 2. If a Morgul knife is actually inserted DIRECTLY into the heart, wraithification occurs INSTANTLY). In short the amount of uses Sauron could have put additional rings or ring re-use to are so large it's is safe to assume that if he could have, he would have and that since he didn't he couldn't.
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