diff --git a/src/plugins/initiatives/createGraph.js b/src/plugins/initiatives/createGraph.js
new file mode 100644
index 0000000..5919219
--- /dev/null
+++ b/src/plugins/initiatives/createGraph.js
@@ -0,0 +1,98 @@
+// @flow
+
+import {
+  Graph,
+  EdgeAddress,
+  NodeAddress,
+  type Edge,
+  type Node,
+  type EdgeAddressT,
+  type NodeAddressT,
+} from "../../core/graph";
+import type {ReferenceDetector, URL} from "../../core/references";
+import type {Initiative, InitiativeRepository} from "./initiative";
+import {
+  initiativeNodeType,
+  dependsOnEdgeType,
+  referencesEdgeType,
+  contributesToEdgeType,
+  championsEdgeType,
+} from "./declaration";
+
+function initiativeAddress(initiative: Initiative): NodeAddressT {
+  return NodeAddress.append(
+    initiativeNodeType.prefix,
+    ...NodeAddress.toParts(initiative.tracker)
+  );
+}
+
+function initiativeNode(initiative: Initiative): Node {
+  return {
+    address: initiativeAddress(initiative),
+    timestampMs: initiative.timestampMs,
+    description: initiative.title,
+  };
+}
+
+type EdgeFactoryT = (initiative: Initiative, other: NodeAddressT) => Edge;
+
+function edgeFactory(
+  prefix: EdgeAddressT,
+  fromInitiative: boolean
+): EdgeFactoryT {
+  return (initiative: Initiative, other: NodeAddressT): Edge => {
+    const iAddr = initiativeAddress(initiative);
+    const src = fromInitiative ? iAddr : other;
+    const dst = fromInitiative ? other : iAddr;
+    return {
+      address: EdgeAddress.append(
+        prefix,
+        ...NodeAddress.toParts(initiativeAddress(initiative)),
+        ...NodeAddress.toParts(other)
+      ),
+      timestampMs: initiative.timestampMs,
+      src,
+      dst,
+    };
+  };
+}
+
+const depedencyEdge = edgeFactory(dependsOnEdgeType.prefix, true);
+const referenceEdge = edgeFactory(referencesEdgeType.prefix, true);
+const contributionEdge = edgeFactory(contributesToEdgeType.prefix, false);
+const championEdge = edgeFactory(championsEdgeType.prefix, false);
+
+export function createGraph(
+  repo: InitiativeRepository,
+  refs: ReferenceDetector
+): Graph {
+  const graph = new Graph();
+
+  for (const initiative of repo.initiatives()) {
+    // Adds the Initiative node.
+    graph.addNode(initiativeNode(initiative));
+
+    // Consider the tracker a contribution.
+    graph.addEdge(contributionEdge(initiative, initiative.tracker));
+
+    // Generic approach to adding edges when the reference detector has a hit.
+    const edgeHandler = (
+      urls: $ReadOnlyArray<URL>,
+      createEdge: EdgeFactoryT
+    ) => {
+      for (const url of urls) {
+        const addr = refs.addressFromUrl(url);
+        if (!addr) continue;
+        graph.addEdge(createEdge(initiative, addr));
+      }
+    };
+
+    // Maps the edge types to it's fields.
+    edgeHandler(initiative.dependencies, depedencyEdge);
+    edgeHandler(initiative.references, referenceEdge);
+    edgeHandler(initiative.contributions, contributionEdge);
+    edgeHandler(initiative.champions, championEdge);
+  }
+
+  return graph;
+}
diff --git a/src/plugins/initiatives/createGraph.test.js b/src/plugins/initiatives/createGraph.test.js
new file mode 100644
index 0000000..23a8ea0
--- /dev/null
+++ b/src/plugins/initiatives/createGraph.test.js
@@ -0,0 +1,357 @@
+// @flow
+
+import {
+  EdgeAddress,
+  NodeAddress,
+  type EdgeAddressT,
+  type NodeAddressT,
+} from "../../core/graph";
+import type {ReferenceDetector, URL} from "../../core/references";
+import type {Initiative, InitiativeRepository} from "./initiative";
+import {topicAddress} from "../discourse/address";
+import {createGraph} from "./createGraph";
+import {
+  initiativeNodeType,
+  dependsOnEdgeType,
+  referencesEdgeType,
+  contributesToEdgeType,
+  championsEdgeType,
+} from "./declaration";
+
+class MockInitiativeRepository implements InitiativeRepository {
+  _counter: number;
+  _initiatives: Initiative[];
+
+  constructor() {
+    this._counter = 1;
+    this._initiatives = [];
+  }
+
+  addInitiative(shape?: $Shape<Initiative>): Initiative {
+    const num = this._counter;
+    this._counter++;
+
+    const initiative: Initiative = {
+      title: `Example Initiative ${num}`,
+      timestampMs: 400 + num,
+      completed: false,
+      tracker: topicAddress("https://example.com", num),
+      dependencies: [],
+      references: [],
+      contributions: [],
+      champions: [],
+      ...shape,
+    };
+
+    this._initiatives.push(initiative);
+    return initiative;
+  }
+
+  initiatives() {
+    return [...this._initiatives];
+  }
+}
+
+class MockReferenceDetector implements ReferenceDetector {
+  _references: Map<URL, NodeAddressT>;
+
+  constructor() {
+    this._references = new Map();
+    jest.spyOn(this, "addressFromUrl");
+  }
+
+  addReference(url: URL, address: NodeAddressT) {
+    this._references.set(url, address);
+  }
+
+  addressFromUrl(url: URL): ?NodeAddressT {
+    return this._references.get(url);
+  }
+}
+
+function example() {
+  return {
+    repo: new MockInitiativeRepository(),
+    refs: new MockReferenceDetector(),
+  };
+}
+
+function exampleNodeAddress(id: number): NodeAddressT {
+  return NodeAddress.fromParts(["example", String(id)]);
+}
+
+function discourseInitiativeAddress(id: number): NodeAddressT {
+  return NodeAddress.append(
+    initiativeNodeType.prefix,
+    ...NodeAddress.toParts(topicAddress("https://example.com", id))
+  );
+}
+
+function edgeAddress(prefix: EdgeAddressT) {
+  return (
+    initiativeAddress: NodeAddressT,
+    other: NodeAddressT
+  ): EdgeAddressT => {
+    return EdgeAddress.append(
+      prefix,
+      ...NodeAddress.toParts(initiativeAddress),
+      ...NodeAddress.toParts(other)
+    );
+  };
+}
+
+const dependencyEdgeAddress = edgeAddress(dependsOnEdgeType.prefix);
+const referenceEdgeAddress = edgeAddress(referencesEdgeType.prefix);
+const contributionEdgeAddress = edgeAddress(contributesToEdgeType.prefix);
+const championEdgeAddress = edgeAddress(championsEdgeType.prefix);
+
+describe("plugins/initiatives/createGraph", () => {
+  describe("createGraph", () => {
+    it("should add initiative nodes to the graph", () => {
+      // Given
+      const {repo, refs} = example();
+      repo.addInitiative();
+      repo.addInitiative();
+
+      // When
+      const graph = createGraph(repo, refs);
+
+      // Then
+      const nodes = Array.from(
+        graph.nodes({prefix: initiativeNodeType.prefix})
+      );
+      expect(nodes).toEqual([
+        {
+          description: "Example Initiative 1",
+          timestampMs: 401,
+          address: discourseInitiativeAddress(1),
+        },
+        {
+          description: "Example Initiative 2",
+          timestampMs: 402,
+          address: discourseInitiativeAddress(2),
+        },
+      ]);
+    });
+
+    it("should add the tracker as a contribution edge", () => {
+      // Given
+      const {repo, refs} = example();
+      const i1 = repo.addInitiative();
+
+      // When
+      const graph = createGraph(repo, refs);
+
+      // Then
+      const contributions = Array.from(
+        graph.edges({
+          addressPrefix: contributesToEdgeType.prefix,
+          showDangling: true,
+        })
+      );
+      expect(contributions).toEqual([
+        {
+          address: contributionEdgeAddress(
+            discourseInitiativeAddress(1),
+            i1.tracker
+          ),
+          dst: discourseInitiativeAddress(1),
+          src: i1.tracker,
+          timestampMs: i1.timestampMs,
+        },
+      ]);
+    });
+
+    describe("reference detection attempts", () => {
+      it("should attempt to resolve dependency URLs", () => {
+        // Given
+        const {repo, refs} = example();
+        repo.addInitiative({
+          dependencies: ["https://example.com/1"],
+        });
+
+        // When
+        createGraph(repo, refs);
+
+        // Then
+        expect(refs.addressFromUrl).toHaveBeenCalledWith(
+          "https://example.com/1"
+        );
+      });
+
+      it("should attempt to resolve reference URLs", () => {
+        // Given
+        const {repo, refs} = example();
+        repo.addInitiative({
+          references: ["https://example.com/2"],
+        });
+
+        // When
+        createGraph(repo, refs);
+
+        // Then
+        expect(refs.addressFromUrl).toHaveBeenCalledWith(
+          "https://example.com/2"
+        );
+      });
+
+      it("should attempt to resolve contribution URLs", () => {
+        // Given
+        const {repo, refs} = example();
+        repo.addInitiative({
+          contributions: ["https://example.com/3"],
+        });
+
+        // When
+        createGraph(repo, refs);
+
+        // Then
+        expect(refs.addressFromUrl).toHaveBeenCalledWith(
+          "https://example.com/3"
+        );
+      });
+
+      it("should attempt to resolve champion URLs", () => {
+        // Given
+        const {repo, refs} = example();
+        repo.addInitiative({
+          champions: ["https://example.com/4"],
+        });
+
+        // When
+        createGraph(repo, refs);
+
+        // Then
+        expect(refs.addressFromUrl).toHaveBeenCalledWith(
+          "https://example.com/4"
+        );
+      });
+    });
+
+    describe("adding detected edges", () => {
+      it("should add edges for dependency URLs it can resolve", () => {
+        // Given
+        const {repo, refs} = example();
+        refs.addReference("https://example.com/1", exampleNodeAddress(1));
+        repo.addInitiative({
+          dependencies: ["https://example.com/1", "https://example.com/99"],
+        });
+
+        // When
+        const graph = createGraph(repo, refs);
+
+        // Then
+        const dependencies = Array.from(
+          graph.edges({
+            addressPrefix: dependsOnEdgeType.prefix,
+            showDangling: true,
+          })
+        );
+        expect(refs.addressFromUrl).toHaveBeenCalledTimes(2);
+        expect(dependencies).toHaveLength(1);
+        expect(dependencies).toContainEqual({
+          address: dependencyEdgeAddress(
+            discourseInitiativeAddress(1),
+            exampleNodeAddress(1)
+          ),
+          src: discourseInitiativeAddress(1),
+          dst: exampleNodeAddress(1),
+          timestampMs: 401,
+        });
+      });
+
+      it("should add edges for reference URLs it can resolve", () => {
+        // Given
+        const {repo, refs} = example();
+        refs.addReference("https://example.com/2", exampleNodeAddress(2));
+        repo.addInitiative({
+          references: ["https://example.com/2", "https://example.com/99"],
+        });
+
+        // When
+        const graph = createGraph(repo, refs);
+
+        // Then
+        const references = Array.from(
+          graph.edges({
+            addressPrefix: referencesEdgeType.prefix,
+            showDangling: true,
+          })
+        );
+        expect(refs.addressFromUrl).toHaveBeenCalledTimes(2);
+        expect(references).toHaveLength(1);
+        expect(references).toContainEqual({
+          address: referenceEdgeAddress(
+            discourseInitiativeAddress(1),
+            exampleNodeAddress(2)
+          ),
+          src: discourseInitiativeAddress(1),
+          dst: exampleNodeAddress(2),
+          timestampMs: 401,
+        });
+      });
+
+      it("should add edges for contribution URLs it can resolve", () => {
+        // Given
+        const {repo, refs} = example();
+        refs.addReference("https://example.com/3", exampleNodeAddress(3));
+        repo.addInitiative({
+          contributions: ["https://example.com/3", "https://example.com/99"],
+        });
+
+        // When
+        const graph = createGraph(repo, refs);
+
+        // Then
+        const contributions = Array.from(
+          graph.edges({
+            addressPrefix: contributesToEdgeType.prefix,
+            showDangling: true,
+          })
+        );
+        expect(refs.addressFromUrl).toHaveBeenCalledTimes(2);
+        expect(contributions).toHaveLength(2);
+        expect(contributions).toContainEqual({
+          address: contributionEdgeAddress(
+            discourseInitiativeAddress(1),
+            exampleNodeAddress(3)
+          ),
+          src: exampleNodeAddress(3),
+          dst: discourseInitiativeAddress(1),
+          timestampMs: 401,
+        });
+      });
+
+      it("should add edges for champion URLs it can resolve", () => {
+        // Given
+        const {repo, refs} = example();
+        refs.addReference("https://example.com/4", exampleNodeAddress(4));
+        repo.addInitiative({
+          champions: ["https://example.com/4", "https://example.com/99"],
+        });
+
+        // When
+        const graph = createGraph(repo, refs);
+
+        // Then
+        const champions = Array.from(
+          graph.edges({
+            addressPrefix: championsEdgeType.prefix,
+            showDangling: true,
+          })
+        );
+        expect(refs.addressFromUrl).toHaveBeenCalledTimes(2);
+        expect(champions).toHaveLength(1);
+        expect(champions).toContainEqual({
+          address: championEdgeAddress(
+            discourseInitiativeAddress(1),
+            exampleNodeAddress(4)
+          ),
+          src: exampleNodeAddress(4),
+          dst: discourseInitiativeAddress(1),
+          timestampMs: 401,
+        });
+      });
+    });
+  });
+});
diff --git a/src/plugins/initiatives/initiative.js b/src/plugins/initiatives/initiative.js
index 93bfae1..c5294bc 100644
--- a/src/plugins/initiatives/initiative.js
+++ b/src/plugins/initiatives/initiative.js
@@ -28,3 +28,13 @@ export type Initiative = {|
   +contributions: $ReadOnlyArray<URL>,
   +champions: $ReadOnlyArray<URL>,
 |};
+
+/**
+ * Represents a source of Initiatives.
+ */
+export interface InitiativeRepository {
+  /**
+   * Gets an array of all Initiatives in this repository.
+   */
+  initiatives(): $ReadOnlyArray<Initiative>;
+}