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True, but the Nazgul were the only ones who really needed the winged steeds, since they were Sauron's messengers. Sauron doesn't come across as a wasteful person, so he probably only "made" enough for the Nazgul, and didn't plan to let any of his other servants use them.
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But Melkor also was there, and he came to the house of Fëanor, and there he slew Finwë King of the Noldor before his doors, and spilled the first blood in the Blessed Realm; for Finwë alone had not fled from the horror of the Dark.
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