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At the time of the ordinance, there were eighteen licensed brothels in Bankside employing about a thousand prostitutes at any one time. Why Southwark? By the 12th century, Southwark had already been a hot spot for prostitution since the Romans built the first known brothel in England at what was then an obscure military outpost.
Southwark itself grew out of a brothel. More than that, Southwark had been a privileged borough for most of its history, its many churches creating a place of asylum that extended to protecting criminals and prostitutes from the full extent of the law. While the church officially condemned prostitution and sexual promiscuity, they had no reservations about profiting from it.
It was much easier for them to carry on business in a protected premises in a protected area. The regulations and penalties, although set out in great detail and with seemingly terrifying or at least terrifyingly expensive punishments, were of little practical consequence. Most infractions would be hard to prove, and all could be nullified with a little judicious bribery. Single women were not allowed to own brothels with exceptions being made for those who had inherited one from a relative or left one by a husband.
The ordinance was devised both to protect the women employed in the sex trade and to limit certain behaviors. One of these protections was freedom from accusations of consorting with the devil.