Over the years I've seen a lot of inadequate tow setups- lots of issues with no trailer brakes on heavier trailers. Some of it is ignorance about towing requirements, not overt cheapness or lawbreaking. In other words people who follow the rules but then you look at their tow setup and see multiple problems.
I'd say education should be at the top of the list.
More inspections of tow gear during routine traffic stops-including braking systems.
Trailer brakes installed on new trailers at time of purchase in accordance w/ state law. If cargo trailer, braking is based on typical cargo loads. If trailer does not meet the state law, a big obvious for "off road use only" form is signed at time of purchase.
More emphasis on tow gear in DMV handbooks and an occasional question on written tests.
Utility trailer MFG dedicate a bit of advertising space for trailering safety.
