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The states don't say if you have safety cables, you don't need brakes. Any trailer over 3000 lbs, or 1500 lbs in a lot of states, needs break-away brakes. That is why surge brakes are not offered as much any more because they did not meet the break-away requirement.
Safety cables are important. But in most cases, the safety cables are attached on the same hitch mount as the ball or tow bar. A failure of that attachment point, will let loose of both things.
As for a dolly/car combination, the dolly can disconnect from the tow vehicle but the tongue will tend to drop to the ground and cause a halt. That doesn't remove the requirements for brakes for the dolly as the dolly is rated for weight with the car loaded.
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