I actually had this conversation about Jyggalag earlier today. Whereas the Divines represent aspects of life and of community, these individual traits, the Daedra are less about contributing to life, but rather to meddle with or control it. Dagon was a great example, Molag another - even Meridia. She's so damn insulted by something, that she sends you somewhere as her hand, to directly interfere with the plans or actions of another and to snuff out this evil. There is no real choice in the matter, no bargain, simply the direct interference of Nirn. 

Jyggalag, as harmless as his domain of order might seem, would actually be a huge threat to Tamriel. Imagine a tall office building, with cubicles among cubicles among cubicles. Zombies in their cubicles. Going in. Going out. They move like clockwork, are totally obedient, and there's no soul in this place. Humanity has enough order to function, but we're far too much a free spirit to really accept that, especially in Tamriel. I don't think any race in Tamriel would be open to that sort of subjugation.