Whenever ten or more persons who are holders of title to lands located outside the corporate limits of any incorporated city or town file a petition and map with the board of county commissioners of the county in which such area is located showing that they are the owners of all land described and included within the boundaries of the proposed district, that they all desire the formation of a Rural Road Limited Improvement District and that there will not be any bonded indebtedness or levy of taxes for payment of road improvement or maintenance, the said board of county commissioners may forthwith enter its order organizing such district, specifying therein that such district has no power to incur debt or levy taxes; and when such order is entered such district shall have the powers conferred herein or such as may hereafter be conferred by law upon such district.