Not always, but usually. Generally, there is no need for a charge controller with the small maintenance, or trickle charge panels, such as the 1 to 5 watt panels. A rough rule is that if the panel puts out about 2 watts or less for each 50 battery amp-hours, then you don't need one.
For example, a standard flooded golf car battery is around 210 amp-hours. So to keep up a series pair of them (12 volts) just for maintenance or storage, you would want a panel that is around 4.2 watts. The popular 5 watt panels are close enough, and will not need a controller. If you are maintaining AGM deep cycle batteries, such as the Concorde Sun Xtender then you can use a smaller 2 to 2 watt panel.