Appointment Russell took office as prime minister with the Whigs only a minority in the House of Commons. It was the bitter split in the Conservative Party over the Corn Laws that allowed Russell's government to remain in power in spite of this, with Sir Robert Peel and his supporters offering tentative support to the new ministry in order to keep the protectionist Conservatives under
Lord Stanley in opposition. At the
general election of August 1847 the Whigs made gains at the expense of the Conservatives, but remained a minority, with Russell's government still dependent on the votes of
Peelite and
Irish Repealer MPs to win divisions in the Commons.
Domestic agenda for the
Great Exhibition, which took place in 1851 while he was Prime Minister. In this group portrait of the Commissioners, by
Henry Wyndham Phillips, Russell is depicted standing behind
Prince Albert (fifth from right). Russell's political agenda was frequently frustrated by his lack of a reliable Commons majority. However, his government was able to secure a number of notable social reforms. Russell introduced teachers' pensions and used
Orders in Council to make grants for teacher training. The
Public Baths and Wash-houses Acts of 1847 and 1848 enabled local authorities to build municipal baths and washing facilities for the growing urban working classes. Russell lent his support to the passage of the
Factories Act 1847, which restricted the working hours of women and young persons (aged 13–18) in textile mills to 10 hours per day. 1848 saw the introduction of the
Metropolitan Commission of Sewers and the
Public Health Act 1848 (
11 & 12 Vict. c. 63), by which the state assumed responsibility for sewerage, clean water supply, refuse collection and other aspects of public health across much of England and Wales. Following the election of
Lionel de Rothschild in the 1847 general election, Russell introduced a Jewish Relief bill, which would have allowed Rothschild and other Jews to sit in the House of Commons without their having to take the explicitly Christian oath of allegiance. In 1848, the bill was passed by the House of Commons, receiving support from the Whigs and a minority of Conservatives (including future prime minister
Benjamin Disraeli). However, it was twice rejected by the Tory dominated House of Lords, as was a new bill in 1851. Rothschild was re-elected in the 1852 general election following the fall of the Russell government but was unable to take his seat until the
Jews Relief Act was finally passed in 1858.
Ireland Russell's government led the calamitous response to the
Irish Famine. During the course of the famine, an estimated one million people died from a combination of malnutrition, disease and starvation and well over one million more
emigrated from Ireland. After taking office in 1846, Russell's ministry introduced a programme of public works that by the end of that year employed some half-a-million but proved impossible to administer. In 1846 Russell reported that in one year more than 50,000 Irish families had been "turned out of their wretched dwellings without pity and without refuge...we have made it the most degraded and most miserable country in the world...all the world is crying shame upon us." In January 1847, the government abandoned this policy, realising that it had failed, and turned to a mixture of "indoor" and "outdoor" direct relief; the former administered in
workhouses through the
Irish Poor Laws, the latter through
soup kitchens. The costs of the Poor Law fell primarily on the local landlords, some of whom in turn attempted to reduce their liability by evicting their tenants. In June 1847, the
Poor Law Extension Act was passed, which embodied the principle, popular in Britain, that Irish property should support Irish poverty. Irish landlords were believed in Britain to have created the conditions that led to the famine, a view which Russell shared.
Relations with the Roman Catholic Church In the first half of his premiership Russell aimed to improve the British government's relations with the papacy and the Catholic clergy in Ireland, which he saw as one of the keys to making Ireland a more willing part of the United Kingdom. Russell proposed to make an annual grant of £340,000 to the Catholic Church in Ireland, with the aim of ameliorating Irish Catholic opinion towards
the Union. In 1847, Russell's father-in-law the
Earl of Minto was dispatched on a confidential mission to Rome to seek the
Pope's support for the grants plan. In the end, the idea had to be abandoned due to Catholic objections to what they saw as an attempt to control their clergy. However, Russell pressed ahead with plans to re-establish formal diplomatic relations between the
Court of St James's and the
Holy See, which had been severed when
James II was deposed in 1688. Russell managed to pass an Act to authorise an exchange of ambassadors with Rome, but not before the bill was amended by Parliament to stipulate that the Pope's ambassador must be a
layman. The Pope refused to accept such a restriction on his choice of representative and so the exchange of ambassadors did not take place. It would not be until 1914 that formal
UK-Vatican diplomatic relations were finally established. Relations with the papacy soured badly in late 1850 after
Pope Pius IX issued the
bull Universalis Ecclesiae. By this bull Pius unilaterally reintroduced Catholic bishops to England and Wales for the first time since the
Reformation. Anti-Catholic feelings ran high with many Protestants incensed at what they saw as impertinent foreign interference in the prerogative of the established
Church of England to appoint bishops. Russell, not withstanding his long record of advocating civil liberties for Catholics, shared the traditional Whig suspicion of the Catholic hierarchy, and was angered at what he saw as a papal imposition. On 4 November 1850, in a letter to the
Bishop of Durham published in
The Times the same day, Russell wrote that the Pope's actions suggested a "pretension to supremacy" and declared that "No foreign prince or potentate will be permitted to fasten his fetters upon a nation which has so long and so nobly vindicated its right to freedom of opinion, civil, political, and religious". Russell's "Durham letter" won him popular support in England but in Ireland it was viewed as an unwarranted insult to the Pope. It lost Russell the confidence of Irish Repealer MPs and the cabinet were angered that he had made such an incendiary statement without having consulting them. The following year Russell passed the
Ecclesiastical Titles Act 1851 with Tory support, which made it a criminal offence carrying a fine of £100 for anyone outside of the Church of England to assume an episcopal title "of any city, town or place, or of any territory or district...in the United Kingdom." The Act was widely ignored without consequences and only served to further alienate Irish MPs, thereby weakening the government's position in the Commons.
Disagreements with Palmerston and fall of ministry Russell frequently clashed with his headstrong Foreign Secretary,
Lord Palmerston, whose belligerence and support for continental revolution he found embarrassing. In 1847 Palmerston provoked a confrontation with the French government by undermining the plans of the Spanish court to marry the young
Spanish Queen and
her sister into the French royal family. He subsequently clashed with Russell over plans to increase the size of the army and the navy to defend against the perceived threat of French invasion, which subsided after the overthrow of the
French king in 1848. In 1850, further tension arose between the two over Palmerston's
gunboat diplomacy in the
Don Pacifico affair, in which Palmerston sought compensation from the
Greek government for the ransacking and the burning of the house of
David Pacifico, a Gibraltarian holder of a British passport. Russell considered the matter "hardly worth the interposition of the British lion," and when Palmerston ignored some of his instructions, the Prime Minister wrote to Palmerston telling him he had informed the Queen that he "thought the interests of the country required that a change should take place at the Foreign Department." However, less than a month later
Lord Stanley successfully led the House of Lords into passing a motion of censure of the Government over its handling of the affair and Russell realised that he needed to align with Palmerston in order to prevent a similar motion being passed by the House of Commons, which would have obliged the Government to resign. The Government prevailed, but Palmerston came out of the affair with his popularity at new heights since he was seen as the champion of defending British subjects anywhere in the world. Russell forced Palmerston to resign as Foreign Secretary after Palmerston recognised
Napoleon III's coup of 2 December 1851 without first consulting the Queen or Cabinet. Russell tried to strengthen his government by recruiting leading Peelites such as
Sir James Graham and
the Duke of Newcastle to his administration, but they declined. Out of office, Palmerston sought revenge by turning a vote on a militia bill into a
vote of confidence in the Government. A majority vote in favour of an amendment proposed by Palmerston caused the downfall of Russell's ministry on 21 February 1852. This was Palmerston's famous "tit for tat with Johnny Russell." ==Between premierships: 1852–1865==