Nehemiah 7:4

Houses were not builded. This does not mean that there were no houses at all, for the city had now been inhabited again for 90 years. It means that in proportion to the size of the city, comparatively few houses had been rebuilt and that there was still much unoccupied space on which houses were yet to be built. When Nehemiah came to Jerusalem he found the Temple restored, but the greater part of the city still in ruins. The new state was basically agricultural, and had functioned without a real capital. Now the city had walls and was safe as a residence and suitable for a capital. The problem confronting Nehemiah was one of inducing people to live in the city and to see that they had shelter.