LEED Core and Shell: Energy Performance Improvement

When modeling a building under the Core and Shell system, do I have to compare the energy performance only between systems under the project scope, i.e. Core and Shell? Or do I have to compare energy performance between the entire buildings, i.e. Core and Shell + tenants? If I have to compare the performance between the entire buildings, it seems unfair to projects where the Core and Shell represent a small portion of the energy consumption (e.g. 40%). In this example, the project must improve energy performance by 25% or more (depends of the process energy consideration) on the Core and Shell systems just to meet the pre-requisite (10% improvement). Can someone give me a clarification on this?