I believe that Sauron did most of his command through his thought, especially to the Nazgul. It is similar in fashion, I believe (though I hate to compare the two), to Eru Illuvatar's communication with Manwe Sulimo in Manwe's own thoughts. I doubt that the "Eye of Sauron" (as it was portrayed physically in the movies) would do much talking even if it desired to.
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...where the instrument of intelligence is added to brute power and evil will, mankind is powerless in its own defence.
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