Why brake controllers exist
Trailers over 3,000 lbs have electric brakes on the trailer's axles (sometimes hydraulic surge brakes on smaller utility trailers). Electric brakes need the tow vehicle to send a signal to engage them.
Without a brake controller, the trailer's brakes do not work. The tow vehicle's brakes alone must stop the entire combination — drastically reduced stopping power on heavy trailers.
Federal Motor Vehicle Safety Standard (FMVSS) does not federally mandate brake controllers but every US state has its own law setting the threshold above which trailer brakes are required.