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Corporation means essentially "group of people acting as a body or individual" for legal purposes. Papers of incorporation define an organization. In order to have a bank account, sign contracts, etc. there must be a legal entity which can be held responsible. In the case of a town, city or county, you can't really just bill the mayor (or whoever). Charitable organizations, churches and other groups also incorporate for purposes of owning property, managing finances, etc. By incorporating a city, you define legally in official paperwork what are the limits of the government's authority, who will be responsible for various duties, how they will be chosen, how spending will be authorized, etc. Some towns may still operate without incorporating, but I would only expect to find such things where most people still know each other by first name and know who in the community can be trusted.
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