Chapter 3 sets the stage for the book's study of implementation. It explores the policy and institutional terrain of primary education in India, examining the political currents beneath India's sluggish expansion of primary education policy. It also presents the legal and administrative architecture for policy implementation. Based on interviews and archival materials, I find that the adoption of universal primary education policies was driven by elite politics inside the state. Committed state officials gradually expanded their authority, using administrative levers to institutionally layer reforms on top of the existing education system. As the Indian economy liberalized in the 1990s, reformers drew on World Bank fiscal and technical assistance to scale up reforms across the country. The argument builds on theories of gradual institutional change, highlighting the agency of committed state elite. The findings also suggest the limitations of institutional layering in India's education system, which failed to address weak administrative capacity and problems of local accountability.