In 1529 Panamá is described by Herrera as "a town of six hundred householders." In 1581 it was styled by Philip "muy noble y muy leal." Nevertheless its progress was greatly retarded by sickness, caused by the heat of the atmosphere, the humidity of the soil, and the spread of infectious diseases. Small-pox, quinsy, dysentery, intermittent fevers, and other ailments were prevalent among the community, and at times the city was almost depopulated.[XXII‑29] * * * * * In 1564 the seat of the audiencia of the Confines was removed, as we have seen, to Panamá[XXII‑30] under the presidency of Doctor Barros de Millan. Great though short-lived were the rejoicings throughout Tierra Firme at this victory. The people of Guatemala would not consent to become a mere dependency of the audiencia of Mexico; and as already stated a decree was issued in 1568 ordering that the audiencia should again be removed to Guatemala, the change being made two years later, though, as we shall find, an audiencia was before long once more established in Panamá. [Sidenote: EMBEZZLEMENT AND GAMBLING.] By a cédula dated February 26, 1571, Tierra Firme was made subject to the viceroy of Peru in all matters relating to government, war, and exchequer, but not in civil matters.[XXII‑31] Little direct information of the working of the new regime in the latter part of the sixteenth century can now be obtained. The cédulas issued in later years, however, show it to have been a source of chronic discontent to the royal council in all its departments. Among them was one dated January 7, 1588, forbidding the president and oidores residing at Panamá to visit any private citizen or resident for any purpose whatever, and another dated December 31, 1590, forbidding officials in the treasury department to assume the duties of alcaldes ordinarios at any time. Some of the latter were fined and suspended for illegal speculation with government funds, which became so common that in 1594 the defalcations in the treasury from this cause alone amounted to about one hundred and fifty thousand pesos.[XXII‑32] In 1579 the corregidor of Panamá, when at the point of death, confessed that he alone had embezzled the sum of six thousand two hundred and thirty-six pesos, which he had collected and unlawfully withheld from the treasury.[XXII‑33] The granting of passports was a means by which members of the audiencia contrived to cheat the king of his revenues, his Majesty declaring that in a single year two thousand persons passed through Tierra Firme without procuring the royal license at the prescribed cost.[XXII‑34] Gambling was also prevalent, dice being the favorite game, and many merchants, bringing their goods from Spain, were fleeced by professional gamesters.[XXII‑35]