Kind of surprising, considering his origins, how long he'd been around, and his training with Morgoth, isn't it? But maybe they weren't created but bred, like the Nazguls' horses.
He'd have the gestation time, which can't be short for such large creatures, and then he would have to wait until they matured before he began training them, which would also take a while. All in all, it seems like a very long and involved process. And after he got his living airforce, he'd have to find a place to keep them and he'd have to have specially trained Orcs to feed and care for them (since the Nazgul certainly wouldn't do it). It just wouldn't be economically feasible.
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"Man as a whole, Man pitted against the universe, have we seen him at all 'til we see that he is like a hero in a fairy tale?"
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