My guess is it's because at this point the population of cities was growing quickly, but the large scale migration of farm laborers into them hadn't begun in earnest yet. So most of the housing being built at the edges was intended for the expanding merchant classes, who wanted something a bit more impressive, and who also had live in servants. The Georgian terraces of London are typically three or four storeys, with the top storey being rooms with low-ceilings where the servants lived.