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The thing is that the Nazgul simply weren't particularly powerful. I mean, what power did they actually have? They carry swords, have nasty voices and that's pretty much it. Also they have a surprisingly high amount of weaknesses - fire, water and the very name of Elbereth. Heck, Aragorn by himself drove off five of them with a *torch*. He was able to make them flee without even drawing steel.
The Nazgul are somewhat like terrorists; the paranoia, uncertainty and overall psychological effect associated with them are in many ways more powerful than the actual beings themselves.
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'Dangerous!' cried Gandalf. 'And so am I, very dangerous: more dangerous than anything you will ever meet, unless you are brought alive before the seat of the Dark Lord.'
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