Hey, what do you think of 5-10 or so Dragons throughout the world, all of which you have (privately) given character to, that will come into and out of play eventually? Usually NPCs (nations can't 'control' a dragon, they are too powerful and too free-willed?)
Obviously this is your creation and I am trying not to hamper too much with the creative aspect of the world, so I won't hold you to that if you don't want.