Guidelines for development and implementation of emergency response plans do not provide the planner/implementer with an adequate overview of the functions to be achieved or a measure of their relative importance. To provide a framework in which this importance can be recognized, understood and quantified, a logical goal oriented tree structure has been developed which integrates and gives a clear visual representation of the functions required to meet the emergency preparedness objective. The tree considers a spectrum of both high and low probability events which may require mitigation both onsite and offsite.