The city of St. George, Utah requested bids on an airport construction project.

The city of St. George, Utah requested bids on an airport construction project. Wadsworth Construction submitted the lowest responsible bid. The city council moved to “award the bid to Wadsworth Construction with the condition and understanding we can negotiate down to a price wherein we can meet budget. If this is not acceptable. rebid the project.” Nothing was signed. The city cut $100,000 from the project price to bring it within budget. Wadsworth stated that he felt confident he could do the reduction, but was not prepared to discuss specifics. The next day he returned with a proposal, but the parties never reached an agreement regarding reduction of price. Subsequently, Wadsworth claimed it had a contract for the project, which the city breached by rebidding it. The city claims no contract ever existed.
Who wins and why? Please argue both sides and research/ refer to all appropriate legal sources (federal/ state/ local laws, codes, statutes) to argue from a legal standpoint, and then discuss your personal views.