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Expectations that biotechnology will become a major contributor to economic growth and impact on quality of life explain its high priority on the political agenda of EU Member States. Theoretical advances in understanding innovation processes and instruments for innovation policy have created an increasing demand for empirical tools to develop policy from a systems perspective. This paper aims to provide policy-makers with tools to assist in biotechnology policy-making. Key aspects considered are: the systemic nature of the innovation process in biotechnology; the different policy areas involved in its promotion; and the time lag between policy action and potential policy outcomes. The benchmarking approach combines quantitative and qualitative indicators in order to assess policy activity in relevant policy areas and the achievement of policy goals. [ABSTRACT FROM AUTHOR]