Final answer:
Without the underlined text, we can't definitively say what Penn is suggesting about the city lots; however, the context would typically indicate if they're small, expensive, undeveloped, or crowded.
Step-by-step explanation:
To determine what Penn is saying about the city lots, it is necessary to read the underlined text. Without the context provided by the underlined passage, we cannot accurately select an answer from the provided options (small, expensive, undeveloped, crowded).
Typically, the character of city lots may be described in a variety of ways depending on the historical period, economic conditions, and urban development practices. If Penn refers to city lots as being scarce or densely packed with buildings and people, 'crowded' could be the correct answer. In contrast, if Penn mentions the high cost of purchasing or leasing land, then 'expensive' might be appropriate.
On the other hand, if the text implies that the lots lack buildings or infrastructure, he may be describing them as 'undeveloped'. Lastly, if Penn is referring to the dimensions of the lots being less than desired or commonly smaller than those found elsewhere, 'small' could be correct.