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A car in tow is a trailer and few are less than 3000 lbs. Trailers require braking systems especially for the event of a break-away. Unlike a lot of trailers which when disconnected will drop to the ground and stop. A car in tow has four wheels and is designed to coast with minimum resistance.
Not have a brake system for a four-down towed car isn't a matter of misreading state codes, it is a matter of morality. A run-away disconnected car can easily kill someone.
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