A hierarchical resource management system for a building includes one or more processors. The processors implement a plurality of agents that each monitor sensed values, and generate operating scenarios based on the sensed values for corresponding resources. The processors also implement a coordinator that filters the operating scenarios to remove the operating scenarios that violate internal laws of the agents to form an aggregate validated set of operating scenarios. The processors further implement a supervisor that, responsive to receipt of target conditions for the zones and the aggregate validated set of operating scenarios from the coordinator, selects a combination of the operating scenarios from the aggregate validated set of operating scenarios that achieves target conditions and minimizes overall energy consumption by the resources such that some of the operating scenarios of the combination do not minimize energy consumption of the resources corresponding to the some of the operating scenarios.