thanks for all the replies.
The brakes on the trailer are fine. I had the bearings repacked the drums and shoes inspected, each wheel was adjusted to the point that the shoes were just starting to drag.
Both the trailer brake place and the Ford dealer had a testing box which they hooked up the trailer plug on the truck. When the brake controller was activated manually with a setting of 5.0 and then the max of 10.0 both boxes recorded the same thing, 12 volts and 11 amps for both settings. The Ford repair manual states the system is working if it puts out 12 volts, no mention of AMPs. So if you get the same readings for all settings how do you get stronger braking by increasing the number on the brake controller. What am I missing?