Because most of the country's pre-war industry was concentrated near Budapest, Hungary retained about 51% of its industrial population and 56% of its industry. Horthy appointed Count Pál Teleki as Prime Minister in July 1920. His government issued a numerus clausus law, limiting admission of "political insecure elements" (these were often Jews) to universities and, in order to quiet rural discontent, took initial steps towards fulfilling a promise of major land reform by dividing about 3,850 km2 from the largest estates into smallholdings. Teleki's government resigned, however, after Charles IV unsuccessfully attempted to retake Hungary's throne in March 1921. The return of King Charles produced split parties between conservatives who favored a Habsburg restoration and nationalist right-wing radicals who supported election of a Hungarian king. Count István Bethlen, a non-affiliated right-wing member of the parliament, took advantage of this rift forming a new Party of Unity under his leadership. Horthy then appointed Bethlen prime minister. Charles IV died soon after he failed a second time to reclaim the throne in October 1921. (For more detail on Charles's attempts to retake the throne, see "Charles IV of Hungary's conflict with Miklós Horthy".)