In anticipation of the areas surrounding the bridge becoming prosperous suburbs, tolls were set at relatively high rates on a sliding scale, ranging from a penny for pedestrians to 2s 6d for vehicles drawn by six horses. Exemptions were granted for mail coaches, soldiers on duty and parliamentary candidates during election campaigns. However, the area around the bridge failed to develop as expected. In 1815 John Doulton built the Doulton & Watts (later Royal Doulton) stoneware factory at Vauxhall, and consequently instead of the wealthy residents anticipated by the company, the area began to fill with narrow streets of working class tenements to house the factory's workers. Meanwhile, the large Millbank Penitentiary was built near the northern end of the bridge, discouraging housing development. Consequently, toll revenues were initially lower than expected, and the dividends paid to investors were low.