There are divergent views on what capacity development might mean in relation to agricultural biotechnology. The core of this debate is whether this should involve the development of human capital and research infrastructure, or whether it should encompass a wider range of activities which also include developing the capacity to use knowledge productively. This paper uses the innovation systems concept to shed light on this discussion, arguing that it is innovation capacity rather than science and technology capacity that has to be developed.

Papa Andina began as a regional research program focusing on the Andean potato sectors of Bolivia, Ecuador and Peru, but later shifted its focus to facilitating pro-poor innovation. To accomplish this shift, a number of approaches were developed to foster innovation, by facilitating mutual learning and collective action among individuals and groups with differing, often conflicting, interests.