GARLING CONSTRUCTION, INC., Appellant, vs. CITY OF SHELLSBURG, IOWA and RICHARD GRIMM, as Mayor of the City of Shellsburg, Iowa; CARLA DRAKER, as City Councilperson of the City of Shellsburg, Iowa; CARLA CHARLIER, as City Councilperson of the City of Shellsburg, Iowa; STEVEN TERNUS, as City Councilperson of the City of Shellsburg, Iowa; DANIEL ROEHR, as City Councilperson of the City of Shellsburg, Iowa; and TIMOTHY BIRD, as City Councilperson of the City of Shellsburg, Iowa, Appellees.