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.

The process of knowledge brokering in the agricultural sector, where it is generally called agricultural extension, has been studied since the 1950s. While agricultural extension initially employed research push models, it gradually moved towards research pull and collaborative research models. The current agricultural innovation systems perspective goes beyond seeing research as the main input to change and innovation, and recognises that innovation emerges from the complex interactions among multiple actors and is about fostering combined technical, social and institutional change.