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 the budget. if this is not acceptable, rebid the project." Nothing was signed. The city cut $100000 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 the 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? answer base on California law