The Greed of Ruin by Lilo Quie

Varis has been residing on an abandoned ship outside of Monsmount’s jurisdiction for two years waiting for the war to end and the trade embargos to cease. The treasure he guards is worth a king’s ransom, and he’s going to use it to buy his freedom. If he’s sent back to his home country, all that awaits him is an honorable death as an ashen sacrifice to a god he never worshiped. But when he finds a dragon circling his ship, all his worries melt away. He’s more than he ever bargained for.
Ghreiden, youngest son of the former king of Sauria, has been given a territory to rule and raise from the ashes. Failing docks, dirty water, filthy beaches and crooked clergy mire the failing port nation. When most of the tradesmen have up and left, businesses have gone astray and what little is left is hardly anything to brag about, Ghreid wants to give up, but in the swimming recesses of a sea outcropping laden with abandoned ships, the reason for his relocation becomes clear. The ashen ones are fated to meet their dragons, and Ghreiden is no exception.