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I would think that it would logically be a Nazgul. Sauron would want, if possible, somebody like a Nazgul to lead if he were not there. Why? He has great power and influence and essentially has no will but Sauron's will; therefore he would make the greatest leader in Sauron's mind. That is why his first in command was a Nazgul and so would his second.
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“I wish it need not have happened in my time," said Frodo.
"So do I," said Gandalf, "and so do all who live to see such times. But that is not for them to decide. All we have to decide is what to do with the time that is given us.”
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