To provide a scientific guide for most countries in the world to build a complete public health emergency management system. Capacity assessment theory and emergency management theory were reviewed respectively and linked together to construct a preliminary, two-dimensional public health emergency response capacity framework. A preliminary framework for public health emergency response capacity was obtained, which consists of three levels: the systems level, the organizational level, and the individual level. A two-dimensional matrix or a set of two-dimensional matrixes that comprise capacity, dimension, and emergency function dimension formed the preliminary framework in three levels, respectively. This preliminary framework can act as a theoretical guide for a country or a region to set up their own public health emergency response systems.