There are likely a lot of other factors involved.
Is there any modification of graphics involved? Rounded corners, tricky fades, animations, flash? ++ time.
Is this integrated into a CMS? This gets more complicated when I see this:
then create an option from our services page linking to that page.
"Option?" What does this mean, a form control
like a drop down list, checkbox, radio button? That being the case, there may be some server side programming involved. Many users see forms as "click a button, it should do this, it should do that - SIMPLE!" but there is a lot that goes on behind a click - program logic, error checking, debugging. The good ones only make
it look simple. I deal with this daily, when a customer starts off with "this should be simple so it shouldn't cost much" my bowels go weak, I'm in for it.
Along those lines, are these pages output dynamically? I know you might not know what that means, but sometimes a "page" is not always a file, it's an output from a program.
I could be off, but often the simple explanation is not always the whole story. I'd ask him to explain (which, like it or not, will probably and SHOULD go into the padding of the project price. Time = money.)