(Essentially depends on a dragon. usually it's just the one, or them and their mate and later eggs untill they grow up and leave to make their own homes. Though some dragons could form small packs, but they have to all be the same kind of dragon and most packs just live in large areas and just control one large area and mulitple cities. However if you're going with just the one city, for guards and such, you could have half dragon offspring, or draconic ancestory enforcers, such as kobolds and such Or just regular elves humans, and anthros you have worshipping you.)