The lack of towns was a source of much uneasiness to the first promoters of the colony, for they regarded it as a sign of unhealthful and abnormal conditions and frequent directions were given to the colonial governors to put an end to the scattered mode of life and to encourage in every way possible the development of cities. Sir Francis Wyatt was instructed "to draw tradesmen and handicraftmen into towns."[51] Time and again throughout the 17th century the English kings insisted that the Assembly should pass laws intended to establish trading towns. In 1662, an act was passed at the command of Charles II providing for the building of a city at Jamestown.[52] There were to be thirty-two brick houses, forty feet long, twenty feet wide, and eighteen feet high; the roof to be fifteen feet high and to be covered with slate or tile. "And," says the Act, "because these preparations of houses and stores will be altogether useless unless the towne be made the marte of all the adjoyning places, bee it therefore enacted that all the tobacco made in the three counties of James Citty, Charles Citty, and Surrey shall the next yeare when the stores be built be brought by the inhabitants to towne and putt in the stores there built." This absurd attempt met with utter failure. One of the complaints made to the King's Commissioners sent to investigate the causes of Bacon's Rebellion was, "That great quantities of tobacco was levied upon the poor people to the building of houses at Jamestown, which was not made habitable but fell down again before they were finished."[53] In an effort to build up towns an act was passed in 1680 requiring all merchants to bring their goods to certain specified spots and there only to load their vessels with tobacco. "But several masters of ships and traders ... not finding ... any reception or shelter for themselves, goods or tobaccos, did absolutely refuse to comply with the said act ... but traded and shipped tobaccos as they were accustomed to doe in former years, for which some of them suffered mouch trouble ... the prosecution being chiefly managed by such persons ... as having particular regard to their privat ends and designs, laid all the stumbling blocks they could in the way of publick traffic (though to the great dissatisfaction of the most and best part of the country)."[54]