The laws are different in every state. That tells me that not all of these laws are based on any kind of research or scientific principles. Some lawmakers arbitrarily decided this or that, and the decisions are all different.
So we are left with logic and physics to sort it out.
First, let's look at the GVWR of the vehicle doing the towing, compared to it's actual scale weight. The vehicle's brakes are designed to safely stop it's GVWR weight.
Next, lets look at the actual weight of the vehicle being towed and it's affect on the total combined weight of both vehicles.
Let's use an example-
Motorhome with a GVWR of 26,000 lbs and an actual weight of 20,000 lbs.
Towed vehicle with an actual weight of 3000 lbs.
Total combined weight (GCW) is 23,000 lbs.
In the example above, the GCW is 3000 lbs less than the towing vehicle's GVWR. Therefore, the towing vehicle can safely stop both itself and the vehicle being towed. No brakes are needed on the vehicle being towed.
Another example-
Motorhome with a GVWR of 15,000 lbs and actual loaded weight of 14,000 lbs.
Towed vehicle with actual weight of 3000 lbs.
Total combined weight is 2000 lbs greater than the towing vehicle's GVWR. Therefore, the towed vehicle needs brakes. The towing vehicle is not able to stop the extra 2000 lbs with equal braking performance as when it is stopping it's full GVWR weight.
Notice that in both examples, the towed vehicle was the same 3000 lb weight.
This illustrates that various state laws that make a cutoff for towed vehicle brake requirements at xxxx lbs, are not based on anything that makes sense. We know that the towed vehicle or trailer is only one part of the combination and that the whole combination must be considered, in order for any logical conclusions to result in a law that makes sense.
Mowermech points out that many states simply have a braking performance law, rather than laws based simply on the weight of the towed vehicle or trailer. A simple braking performance law makes the most sense.
We know that a vehicle's braking performance is certified at it's GVWR weight, to meet the minimum standards set forth by FMVSS, USDOT, NHTSA, SAE, etc vehicle safety organizations, for manufacture and sale in the US.
So, simply put-
-If the total weight of the combination exceeds the GVWR of the towing vehicle, the towed vehicle or trailer needs brakes.
-If the total weight of the combination does not exceed the GVWR of the towing vehicle, the towed vehicle or trailer does not need brakes.
*All state and federal laws apply, though not all make sense, so the above logical conclusion may be mooted in court by a state law that makes no sense.