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Abstract: This paper reports on findings from a large sample survey in the states of India that account for two thirds of the children out of school. It then examines the feasibility of the central government''s goals to ensure all children complete 5 years of school by 2007, and 8 years by 2010. These goals—more ambitious than the global EFA goals—are unlikely to be achieved without significant reforms by the central and state governments. It examines key reform options: in the public spending pattern; improving teacher accountability and work environment; incentives to improve demand for schooling; and the private sector. It argues that central to universalising elementary education will be improving the level, equity and efficiency of public spending. However, even with these reforms, improving teacher accountability will still remain key to the achievement of the goals. [Copyright &y& Elsevier]