We construct a pseudo-Lagrangian that is invariant under rigid $E_{11}$ and transforms as a density under $E_{11}$ generalised diffeomorphisms. The gauge-invariance requires the use of a section condition studied in previous work on $E_{11}$ exceptional field theory and the inclusion of constrained fields that transform in an indecomposable $E_{11}$-representation together with the $E_{11}$ coset fields. We show that, in combination with gauge-invariant and $E_{11}$-invariant duality equations, this pseudo-Lagrangian reduces to the bosonic sector of non-linear eleven-dimensional supergravity for one choice of solution to the section condition. For another choice, we reobtain the $E_8$ exceptional field theory and conjecture that our pseudo-Lagrangian and duality equations produce all exceptional field theories with maximal supersymmetry in any dimension. We also describe how the theory entails non-linear equations for higher dual fields, including the dual graviton in eleven dimensions. Furthermore, we speculate on the relation to the $E_{10}$ sigma model.
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