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It appears that after the time of the Great Plague (TA 1636), the Nine reassembled in Mordor in secret, but Ithil of course remained Gondor's until the Nazgul (presumably with an army) captured it in 2002. It was they who quietly prepared the way for Sauron's return, which occurred not long after he was driven from Dol Goldur.
When Sauron declared himself openly and rebuilt Barad-dur, it appears that the Witch-king and five others dwelt in Morgul; two were sent to re-occupy Dol Guldur; and one stayed with Sauron as his messenger. There is no indication whether these were 'permanent' billets, or if the individual Ringwraiths rotated among them.
There is no suggestion at all that Mordor was divided into fiefdoms.
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The entire plot of The Lord of the Rings could be said to turn on what Sauron didn’t know, and when he didn’t know it.
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