Any individual, firm, corporation, or other entity desiring to open, lay out, or excavate in or upon any public street within the city shall file an application for a permit therefor with the City Administrator and pay the application fee as the City Council may from time to time prescribe. The permit application shall be referred to the Director of Public Works, who shall approve or disapprove issuance of the permit, or in circumstances he or she deems proper, refer the application to the Council for final action.