Speculation: Maybe dragons were part of an age older than Sauron and needed to be wooed into service, much like Shelob was. Dragons' motivations seem to be to possess treasure rather than to control people. A slightly different sort of evil. Perhaps Sauron and his minions had nothing to offer dragons whereas orcs could offer Shelob food and thus form a mutually beneficial alliance.
Sauron and those who seek power often are unwilling to part with treasure as well. The dragons' price was perhaps too high.
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Do justly, love mercy, walk humbly with your God. Micah 6:8
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