What about one of the Kings of Gondor and Arnor rising up to become a Dark Lord. They would easily have the power and crafrsmanship to wage war against the easterlings and bring them under their rule.
I hink that could be a possability seeing as this is sorta what happened towards the end of Numenors existance with Kings like Ar Pharazon. They laid the men of middle eart under tribute.
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For him that is pitiless, the deeds of pity are ever strange and beyond reckoning - of Melkor before his final downfall
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