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HomeMy WebLinkAbout2004-11-09; City Council; 17882; Annual Housing Production Report FY200410 CITY OF CARLSBAD -AGENDA BILL I AB# 17,88XlTLE: 1 1 /9/04 ANNUAL HOUSING PRODUCTION REPORT FISCAL YEAR 2004 MTG. DEPT. PL CITY ATTY. CITY MGR RECOMMENDED ACTION: That the City Council ADOPT Resolution No. 2004-362 , ACCEPTING the Annual Housing Production Report for fiscal year 2003-2004. ITEM EXPLANATION: Report Description This agenda bill brings to the City Council staffs eleventh annual report on the progress Carlsbad is making in housing production. The report is an information item only and complies with the state law requirement for an annual housing report to the legislative body. No action or environmental review is required. Consisting of the attached memorandum to the City Manager, the annual housing production report focuses on new home production during fiscal year 2003-2004 (FY 2004), the fifth year of the current housing cycle that began July 1, 1999, and was to end June 30, 2004. However, state legislation passed in 2003 added a sixth year to the cycle, extending it to June 30, 2005. Through tables and text, the attached report provides: Statistical data for both new market-rate and publicly assisted homes. New housing affordability by income group. Production and affordability information for homes built in FY 2004 and the first five years of the current housing cycle. Observations and conclusions about the housing production data. 0 0 0 0 Report Highlights on Housinq Production In FY 2004: 0 0 0 Builders completed 591 new homes in Carlsbad, compared to 725 units built in FY 2003 and 1,460 units completed in FY 2002. The median sales price for all for-sale units was $698,635, up $123,735 (or 21 %) from the previous fiscal year. Developers built 50 units affordable to low-income households, including 29 apartments. During the first five years of the current housing cycle (July I, 1999 - June 30, 2004): 0 0 0 0 Builders completed 6,787 units in Carlsbad, 85% of which were considered affordable to other- or “upper”-income households. Housing built affordable to moderate income households accounted for almost four percent (264 units) of total units completed. Slightly more than half of the 843 apartments completed were built affordable to lower- income families. Carlsbad’s lower-income housing stock increased by 720 units. Most of these units resulted from the City’s inclusionary requirements and required city financial assistance. PAGE 2 OF AGENDA BILL NO. 17,882 Report Conclusions Carlsbad continues to see significant results from its commitment to the development of housing affordable to lower-income families. This commitment is evidenced in its policy framework, the allocation of its own resources, and its efforts to pursue creative partnerships with the private sector in all aspects of housing production. The fact that the market continues to strongly support the development of housing primarily affordable to upper-income households is a key reason why the City must maintain its commitment to fully implement the lnclusionary Housing Ordinance. Testimony to this is the 720 lower-income units produced so far in this housing cycle and the several hundred lower-income units now under construction, most of which are the result of inclusionary requirements. Staff recommends the City Council accept this housing report. The report will be forwarded to the Governor's Office of Planning and Research and the California Department of Housing and Community Development as required by law. ENVIRONMENTAL: This is an information item only that does not have the potential to physically impact the environment. Therefore, it is not subject to the California Environmental Quality Act (CEQA) pursuant to CEQA Guideline 15378. FISCAL IMPACT: None. This is an information report only. EXH I BITS : 2004-362 1. City Council Resolution No. 2. Memorandum to the City Manager from the Planning Director dated October 25, 2004, with the subject: Annual Housing Production Report - Fiscal Year 2004 DEPARTMENT CONTACT: Scott Donnell, (760) 602-461 8, sdonn@ci.carlsbad.ca.us a 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 RESOLUTION NO. 2°04-362 A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF ANNUAL HOUSING PRODUCTION REPORT CARLSBAD, CALIFORNIA, ACCEPTING THE FY 2003-2004 WHEREAS, the Housing Element of the General Plan requires that an annual Housing Production Report be prepared and submitted to the local agency, the Governor’s Office of Planning and Research and the California Department of Housing and Community Development; and WHEREAS, the current report covers the period July 1, 2003 to June 30, 2004; and WHEREAS, Carlsbad continues to see significant results from its commitment to the development of housing affordable to lower-income families; and NOW, THEREFORE, BE IT HEREBY RESOLVED by the City Council of the City of Carlsbad, California, as follows: 1. That the above recitations are true and correct. 2. That the City Council of the City of Carlsbad accepts the report and directs the Planning Director to submit the report to the Governor’s Office of Planning and Research and the state Department of Housing and Community Development. PASSED, APPROVED AND ADOPTED at a regular meeting of the Carlsbad City Council held on the 9th day of November , 2004, by the following vote, to wit: AYES: Council ?!embers Lewis, Finnila, Hall and Packard. NOES: None A i: Member Kulchin. ATTEST: LORRAINE M. WOm, City Clerk ’ (SEAL) 3 EXHIBIT 2 OCTOBER 25,2004 TO: CITY MANAGER VIA: w“ Planning Director FROM: Associate Planner ANNUAL HOUSING PRODUCTION REPORT - FISCAL YEAR 2004 This document constitutes the eleventh annual report describing the City’s progress in producing housing. It describes our progress during the previous fiscal year (July 1, 2003 to June 30, 2004, or FY 2004) in meeting, through the construction of new homes, Carlsbad’s estimated share of the region’s forecasted growth for the four income groups identified in state law. Purpose - The Annual Housing Production Report is prepared pursuant to California Government Code Section 65400 (b)(l) which in part requires an agency to report annually to its legislative body on the progress in meeting its share of regional housing needs. Reporting Period - The report covers housing production and affordability in FY 2004, which marks the fifth year of what state law originally intended as a five-year Housing Element cycle. By law, this cycle began July 1, 1999, and was to end June 30,2004. However, legislation passed in 2003 added a sixth year to the cycle, extending it through June 30, 2005. Along with covering FY 2004, this report also discusses production and affordability during the first five years of the housing cycle. Format - The City’s production and progress during FY 2004 and the housing cycle is reported with data contained in the following tables: 0 0 Table 1 defines the four income groups. Tables 2 - 4 set out the qualifying income levels for the four income groups and the corresponding rents and sales prices considered affordable to the income groups during the reporting period (FY 2004). 0 Table 5 provides the counts of new housing built, by income group and housing type, in FY 2004. 0 Table 6 highlights the low-income housing built in FY 2004. 0 Tables 7 and 8 provide price information on the market rate homes built in FY 2004. 0 Table 9 compares our progress so far to the current housing cycle objectives. 0 Tables 10 - 12 focus on production and affordability overall during the current housing cycle. Regional Share Needs - The determination of housing need for Carlsbad and all other jurisdictions in California is derived from the Regional Housing Needs Statements prepared by the regional councils of government (COG) before the beginning of each housing cycle. Based upon these assessments of need the local jurisdictions are charged to adopt housing Objectives in the housing elements of their general plans. A regional assessment of need is an estimate of the total need for new housing construction throughout the region due to growth forecasted to occur during the five-year cycle. The overall housing need is then broken out by four income groups: very low, low, moderate, and other (or CITY MANAGER HOUSING AFFORDABILITY REPORT FY 2004 OCTOBER 25,2004 Paae 2 forecast was prepared in 1998. The combined very low and low-income (“lOWer”-inCOfne) estitnate of need iS 3,187 units. This equals 51% of the total estimated need for the housing cycle. As mentioned earlier, the state has extended the housing cycle one year to June 2005. New construction need estimates in Table 1, although developed for a five-year housing cycle ending in 2004, continue to apply through the cycle’s sixth year. above moderate or upper-income) - all as defined by the federal Department of Housing and Urban Development, or HUD, and the state Department of Housing and Community Development, or HCD. The regional needs are then allocated to the local jurisdictions on a “regional share” basis, according to models and formulas designed by the COG. Table 1: Carlsbad’s Regional Share Need Estimates For Housing Cycle 1999-2005 Definition’ (% of New Construction Needs AM I”) (in housing units) tncom e Group - Very Low 50% or under 1,770 Low 51 - 80 % 1,417 Moderate 81 - 120% 1,436 Other Over 120% 1,591 Totals 6,214 Definitions are from HUD, via the California Department of Housing and Community Development. ”AMI is the County Area Median Income. The 2004 San Diego County Area Median Income for a family of four is $63,400. Definitions of Income Groups - Table 1 also defines each of the four income groups with reference to a percentage of the county area median income (AMI). Defined as the median income for a family of four in a specific geographic area, the AMI changes over time and with location. HCD annually revises the AMI based on HUD data and cost of living issues such as the relationship of housing prices to income. By comparison, the AMI in 2003 was $60,100. For 2004, HCD established the AMI for San Diego County at $63,400. Additionally, HCD modifies the area median income to reflect the differences in costs of living throughout California, as the following 2004 AMI information for different counties shows: San Diego: $63,400 Orange: $75,600 Shasta: $49,100 0 Santa Clara: $105,500 Some regions of California, including San Diego County, have high housing costs relative to incomes. In recognition of this factor, HCD adjusted the AMI and increased the income limits in 2004 for the very low and low-income groups in these regions. This potentially enables a larger group of people to qualify for housing assistance. However, these adjustments did not have an effect on housing built in Carlsbad; they did not cause the affordability of any housing produced in FY 2004, for example, to change from one income group to another. Furthermore, the housing in the City built specifically for low-income families in FY 2004 was already restricted to occupancy by that income group. CITY MANAGER HOUSING AFFORDABILITY REPORT FY 2004 OCTOBER 25,2004 Page 3 Table 2: FY 2004 Qualifying Limits On Annual Income By Household Size Very Low $27,400 $34,250 $39,750 $45,200 $50,700~ Low $43,850 $54,800 $63,550 $72.350 $81,100 Moderate $60,900 $76,100 $88,300 $100,450 $112,650 Other >$60,900 >$76.100 >$88,300 >$100,450 >$112,650 Persons Per Household Income Group 2 4 6 8 Source: "2004 Income Limits," state Department of Housing and Community Development, February 24, 2004 (Numbers based on HUD income data effective January 28,2004). percentages stated in Table 1, but they also reflect the adjustments discussed in the prior paragraph that are necessary to recognize our region's high housing costs relative to incomes. By way of example, a family of four earning $54,800 is considered to have a low-income, even though the amount is 86% of AMI, or five percent more than the Prices of Affordable Housing - Generally, the federal and state rule is that housing is affordable to a given family if the family pays less than 30% of its monthly income for housing expenses that include the rent or mortgage payment, property taxes, insurance, utilities, and the like. A determination of whether a housing unit is affordable can be easily made for assisted public rental housing and other public housing programs because documentation is maintained on both the individual household's income and the actual cost of the unit in question (typically a rental). A determination of whether market rate housing is affordable according to the 30% rule, on the other hand, presents some challenges. Builders of market rate rental and for-sale housing do not set prices based upon an individual buyer's ability to pay. Rather, the rentdprices are set to what the market will bear. Further, rents and prices do not generally vary with the number of people in the household. For example, market rent for a two-bedroom apartment will remain constant no matter if it is being rented to a I-, 2-, 3-, 4, or 5-person household. So the challenge is how to determine to what income arouD (as opposed to an individual household) a given market rate house is affordable, and to do so based upon the number of bedrooms it has (as opposed to persons). A convention developed in 1993 by member agencies of the San Diego Association of Governments assumes two persons per bedroom. Thus, a two-bedroom unit is assumed to house four people. To determine affordable housing expenses for rentals, the practice is to set thresholds for each income group, using the 30% rule, with adjustments for the number of bedrooms. An additional adjustment is also made for a utility allowance, as required by HUD. Table 3 provides the resulting maximum market rate rental expenses (which include rent and a $32-$63 utility allowance that increases with household size) for the Table 3: FY 2004 Qualifying Rent and Utility Expenses By Number of Bedrooms Number of bedrooms Income Group 1 2 3 4 Very Low $685 $856 $994 $1,130 Low $1,086 $1,370 $1,589 $1,809 Moderate $1,523 $1,903 $2,208 $231 1 Other >$I ,523 >$I ,903 >$2,208 >$2,511 Source: "2004 Income Limits," state Department of Housing and Community Development, February 24, 2004; and Carlsbad Housing Authority table on "Lower and Moderate Income Rental Rate Calculations" (based on HUD income data effective Januarv 28.20041 6 CITY MANAGER HOUSING AFFORDABILITY REPORT FY 2004 OCTOBER 25,2004 Page 4 very low, low, and moderate-income groups for FY 2004. To illustrate, couple earning $27,400 annually (considered a very low-income per the table shows that for a Table 2), a one-bedroom apartment would be considered affordable to them only if the rent and utility expenses combined did not exceed $685 per month, or 30% of their income. For-sale market rate housing is even more complicated for purposes of determining affordability. Neither state nor federal regulations provide a formula to determine affordability. A multitude of factors are potentially involved. First, buyers don’t pay the full price of a house in cash. Instead, they take out one of many types of mortgages, subject to many variables (fixed or variable interest rate, down payment, pay-back period, mortgage insurance, loan origination fees, etc.). In addition, other housing costs must be factored in, including property taxes, insurance, utilities, and homeowners’ association dues. All of these factors are recognized “housing costs” and indirectly affect how much a family can pay each month under the 30%-of-income rule. Only the principal and down payment, however, relate directly to the sales price of the house. All the others are related to financing and operating a home. Lacking guidance from state or federal law, SANDAG member agencies developed a simple formula in 1993 for use in determining the affordability of market rate for-sale houses. The formula, provided below, follows a rule-of-thumb used by many mortgage lending institutions. As with the rental formulas discussed earlier, it was subsequently reviewed and accepted by the SANDAG Board and the California Department of Housing and Community Development. Affordable sales price = 3.0 X maximum-allowed-annual-income for each class, adjusted for bedroom count. I Table 4: FY 2004 Qualifying Purchase Price, i I By Number of Bedrooms I I Income Group Number of Bedrooms 1 2 3 4 5 Very Low $82,200 $102,750 $119,250 $135,600 $152,100 Low $131,550 $164,400 $190,650 $217,050 $243,300 Moderate $1 82,700 $228,300 $264,900 $301,350 $337,950 Other >$182,700 >$228,300 >$264,900 >$301,350 >$337,950 * 3X multiplier was developed by an ad hoc committee at SANDAG with subsequent approval by the SANDAG Board in 1993. (There is no formula in state law.) The rule also assumes 2 persons per bedroom to provide a correspondence back to HUD affordability rules based upon per household (as opposed to bedrooms). Since HUD tables do not provide for 12 or more person households, homes with more than 5-bedrooms are treated as if they were 5-bedroom homes. Based upon this formula, Table 4 gives the qualifying purchase price for housing for the different income groups. The table illustrates that a three-bedroom house costing no more than $264,900 would be the maximum affordable to a moderate- income family. This price is three times the $88,300 annual income limit for a moderate-income family of four as shown on Table 2. Conversely, a three-bedroom home costing more than $264,900 would be considered affordable only to families in the other-income group. Determining Affordability - Based on the above information, two variables must be known about a housing unit to determine its affordability: a) the sales price or rent, and b) the number of bedrooms. Staff must collect this information for each individual housing unit. For housing created under one of the City’s housing assistance programs this is relatively easy, as we get the data via the program. On the other hand, for new market rate rentals and for-sale homes, staff must obtain the sales price or rent information directly from the builders. Staff performs this task once a quarter via a voluntary survey of all newly constructed units. Most builders are cooperative and provide the information we CITY MANAGER HOUSING AFFORDABILITY REPORT FY 2004 OCTOBER 25,2004 Page 5 Income Group need. A few are not. If the builder is not responsive, staff attempts additional contacts by mail and phone. If necessary, we also research Building Department records and County Assessor's data, the latter on the Internet, for any missing information on bedroom counts and sales prices. Market Rate Single Family Single Family Condo- Apart- Duplex Detached* Attached** minium ment Due to the research and delays involved in documenting prices and rents and assembling data, this report trails the end of the reporting period by a few months. For this reporting period, staff obtained with the quarterly survey and additional research sales prices and rents for all but a few homes. Housing Activity and Affordability in FY 2004 - Table 5 and the information below summarize and expand on housing completed in FY 2004. Definitions of terms used in the table and the remainder of the report are as follows: Market Rate Units - Units that received no financial assistance from the City and have no affordability restrictions. Assisted Units - Units that received financial assistance from the City and/or other subsidy sources and have affordability restrictions. Single-family detached - A single home on a single lot, detached from any other unit, except for an attached second dwelling unit. Condominium - A detached or attached home on commonly owned property. Apartment - A unit that can only be rented and not owned. Duplex - Two units on a single lot. Units cannot be individually sold. Second Dwelling Unit - A completely independent dwelling unit on the same lot as a primary residence. A second dwelling unit may be attached to or detached from the primary residence. I Table 5: Type and Affordability of Housing Units Constructed in FY 2004 Very Low 0 0 0 0 0 Low 0 0 0 0 0 Moderate 0 0 0 53 0 Other 423 0 12 43 2 Unknown*** 7 1 0 0 0 Assisted Apartment 0 29 0 0 0 Second Totals Dwelling Unit 0 0 21 50 0 53 0 480 0 8 Total Units Bui 430 1 12 96 2 I 29 I 21 591 *Thirteen single family detached homes were built with second dwelling units. These second dwelling units are counted in the second dwelling unit category. ** The single-family attached unit was a single unit built attached to an existing residence. *** The "unknown" income group counts units for which sales prices could not be obtained. CITY MANAGER HOUSING AFFORDABILITY REPORT FY 2004 OCTOBER 25,2004 Paae 6 Pacific View Comments on Housing Production in FY 2004 0 Developers built 591 new homes in Carlsbad, compared to 725 units built in FY 2003 and 1,460 units completed in FY 2002. The decline in production should reverse as several large, new developments (e.g., Kelly Ranch, Calavera Hills, Villages of La Costa) develop. Single-family detached dwellings accounted for 88% of the fiscal year’s production, apartments 21 YO, and condominiums 2%. Kelly Ranch 29 Comments on Housing Affordability in FY 2004 Most (81 %) of the housing built was affordable to upper-income households only. Low-income housing (both apartments and second dwelling units) built during the fiscal year accounted for 8% (50 units) of production, with the majority of it made possible by the City’s inclusionary housing requirements. The apartments, featuring one to three bedrooms, had rents from $950 to $1,326. Based on rents charged, 53 market rate apartments, or roughly 9% of total production, were affordable to moderate-income families. These one to three bedroom units had rents from $1,400 to $2,000. Table 6 highlights Carlsbad’s newest lower-income housing. Small, independent living units located on property with a larger, primary residence. Many of the 21 units built partially satisfied the inclusionary housing requirements of developers. Table If rented, second dwelling units must be affordable to low- income persons. Number of Units Project I Location 1 Second Units Throughout 21 Carlsbad i: Low-income Housing Built in FY 2004 Description Occupancy City I Restrictions 1 Assistance I I One to three bedroom apartments built. When complete, Pacific View will feature 11 1 units affordable to low-income families and 340 market rate units. The 11 1 units satisfy the Kelly Ranch inclusionary housing requirement. None for the market rate units. Otherwise, units are available only to persons with low incomes. None None 9 CITY MANAGER HOUSING AFFORDABILITY REPORT FY 2004 OCTOBER 25,2004 Page 7 Housing Units Built Income Group FY2000 FY2001 FY2002 FY2003FY2004 Total Medians and Extremes - Table 7 compares the median price of for-sale, market rate housing built in FY 2004 and FY 2003. Table 8 provides high and low sales prices during FY 2004. Housing Units Needed obptive Percentage of Oblective Table 7: Comparisons of Median Sales Prices FY 2003 vs. FY 2004 (Market Rate Units Only) I very I-CJw 23 138 17 0 0 1 78 LOW 1 59 158 106 69 50 542 I I Table 8: Low and High Sales Prices Achieved 1,770 10% 1,417 38% Structure Type High MecEanSalesprices percent FY2003 FY2004 - strudure Type Moderate 42 94 75 0 53 264 Other 1,679 1,700 1,255 654 480 5,768 Unknown* 11 7 7 2 8 35 Totals 1,914 2,097 1,460 725 591 6,787 Ccndminium $458,250 $588,900 $13,650 28.5% All For-Sale Units $n4,9oO $698,635 $123,735 21.5% 1,436 18% 1,591 363% n.a. n.a. 6,214 109.2% &doni ni urn $580,588 $620,500 Progress Toward Housing Cycle Objectives - Table 9 below provides the number of dwellings completed during the first five years of the current housing cycle. The table also shows the cumulative progress achieved during those years toward meeting the new housing needs (from Table I) estimated for the housing cycle over its original five-year term (1999-2004). Table 9: Cumulative Progress Toward Current Housing Cycle Objectives CITY MANAGER HOUSING AFFORDABILITY REPORT FY 2004 OCTOBER 25,2004 Paae 8 Affordability of Housing Produced from 1999-2004. - Table 10 show the affordability of housing produced in the first five years of the current housing cycle. Table IO: Affordability of Housing Built July 1,1999 to June 30,2004 Income Group Units Built* Very Low 178 VeryLow Low 8% Moderate / Low 542 . , . , z.xc ,..'.'.A"' ,_, .( . ...../ . . . . . . . . . . . . . . ....................... . . . . . . . . . . . . . . . . . . . ...,.....,. . . . . . . . . Moderate 264 Other 5 768 . . . . . . . . . . . . . . _,. -- Totals 6,752 '35 "unknown" units, for which prices could not be determined, are not reflected in this table. 85% Type of Housing Produced from 1999-2004 - Based on the type of housing built, the nearly 6,800 units constructed over the past five years break down as follows: Table 11: Type of Housing Built July 1,1999 to June 30,2004 Type Units Built Single-Family Attached 159 Condominium 1,273 Apartment 843 Duplex 17 Second dwelling Unit 146 Totals 6,787 Single-Family Detached 4,349 65% CITY MANAGER HOUSING AFFORDABILITY REPORT FY 2004 OCTOBER 25,2004 Page 9 Type of Lower-Income Housing Produced from 1999-2004 - Developers have built over 700 homes for lower-income households in Carlsbad, most resulting from lnclusionary Housing Ordinance requirements and requiring city financial assistance. This accounts for: Almost 11 % of total housing production during the cycle. Nearly one-quarter of the total housing need identified for lower-income families. 0 0 Table 12 breaks down the type and number of lower-income housing built during the current Housing Cycle. Table 12: Type of Lower-Income Housing Built July 1,1999 to June 30,2004 Tvoe Units Built Apartment 455 Condominium 95 Single-family Attached 24 Second Dwelling Unit 146 Totals 720 SDU 20% Conclusions As this report demonstrates, Carlsbad has seen significant results from its commitment to the development of housing affordable to lower-income families. This commitment is evidenced in its policy framework, the allocation of its own resources, and its efforts to pursue creative partnerships with the private sector in all aspects of housing production. While the City has made positive strides in producing lower-income housing, the need for housing affordable to very low, low, and moderate-income families continues to exceed the community’s collective ability to produce it. At the same time, total production of new homes affordable to upper- income groups remains dominant. Clearly, Carlsbad’s private sector continues to produce primarily up-scale housing. A number of factors contribute to this trend: Demand for higher-end housing remains strong; tax incentives for producing more affordable housing are few; land costs are high; and, despite lower, relatively stable or declining interest rates in recent years, per-square-foot production costs remain substantial, so that profit margins on more affordable housing are low. Additionally, when the City considered including a moderate-income requirement .as part of its inclusionary housing ordinances in the early 199Os, the requirement was set aside when the private sector assured the City that it would produce moderate-income housing without inclusionary requirements. Based upon this assurance, the City made a conscious decision to focus its own resources and efforts on lower-income housing. The industry’s production of moderate-income CITY MANAGER HOUSING AFFORDABILITY REPORT FY 2004 OCTOBER 25,2004 Paae 10 housing, averaging about 5% of annual housing output since July 1994, does not stand up well to its earlier assurances. The fact that the market continues to strongly support the development of housing primarily affordable to upper-income households is a key reason why the City must continue its commitment to fully implement the lnclusionary Housing Ordinance. Testimony to this is the 50 low-income units produced during FY 2004, most completed because of Carlsbad’s inclusionary requirements, and the several hundred inclusionary units now under construction, which include: 0 La Costa Greens - 180 apartments 0 Calavera Hills - 106 apartments Kelly Ranch - 82 apartments 0 Bressi Ranch - 100 condominiums 0 Rose Bay - 24 condominiums 0 Village by the Sea - 11 condominiums 0 Tradition Apartment Homes - 24 apartments Because of these projects and its commitment to inclusionary housing, Carlsbad will add more than 500 lower-income homes in 2004 and 2005 and continue to make significant progress toward its estimated regional share needs. SCOTT DONNELL . 13