A Necessary Chaos by Brett Lambert

Vade is an anarchist, a Phantom Dragon. Althus is a Touchstone--an Imperial agent. Their love was never meant to survive. In a world of magical empires and the anarchists that would tear them down, A Necessary Chaos is the story of Althus and Vade, assigned to spy on the other by opposing sides. But now that they've both caught feelings, where will their loyalties fall? They must each decide if they'll follow orders or find a way to make their romance thrive beyond the lies. Part of the Neon Hemlock Novella Series.