As someone that has actually towed a 16-foot C-Dory Angler (both heavily and lightly loaded), as well as a heavier (and even more heavily loaded) 17-foot Arima Sea Ranger with a short-wheelbase vehicle, I'm going to chime in...
I'm not going to address the legal requirements for two reasons. First, I don't know the trailering laws in the jurisdictions in question. And second, it has already been pointed out that brakes may be a legal requirement along some parts of the journey, and whether or not one decides to break a traffic law is none of my business.
What I am going to address is the actual need for trailer brakes when towing a 16-footer on a short wheelbase vehicle. As a comparison, the experience upon which I am drawing is with the use of a 1997 Jeep TJ (Wrangler) as a tow rig, logging several thousand miles in both summer and winter, over seven or eight years while the towed weight progressively increased. The wheelbase of that Jeep is shorter than that of the FJ at just over 93 inches, and the factory towing capacity rating is significantly less at only 2000#.
That said, I easily towed my 16-footer with the Jeep, and without the benefit (or added complexity) of trailer brakes. In the end, the boat was fairly heavy due to the addition of modifications such as twin 24-gallon fuel tanks, but I don't remember ever weighing it. When I sold the Angler and bought the Arima, I also towed it without trailer brakes (albeit for only a short time). However, the loaded Arima was quite a bit heavier than the C-Dory, and the additional weight was very noticeable under tow - especially while braking. Adding electric drum trailer brakes with a good Tekonsha P3 brake controller brought the braking back into my comfort zone.
After having towed the Arima for a couple of years, I had it weighed. The complete towed load, stocked for a weekend trip, scaled in at a hefty 3600 pounds on the trailer. Shortly after that, I made the decision to get a bigger tow rig. But, that decision wasn't made because I was having issues towing... Rather, it was because the Jeep had 230k miles on the odometer and was beginning to show its age, as well as a desire to eventually upgrade to a larger boat (which I would most certainly not be able to tow with the Jeep).
After selling the Jeep and buying a 2003 Ford F-250, I still used the trailer brakes I had installed previously. Although, there was one full summer that I knew they weren't operating, but I didn't have the time or inclination to properly fix them, so I just did without. Even without its trailer brakes operational, I felt no discernible difference when using the much longer wheelbase Ford to tow the now heavier Arima that I estimate to be upwards of 4000 pounds (I had since added a pair of long-range fuel tanks and other goodies). If I were still using the Jeep, I would have been forced to park the boat until I could get the brakes fixed.
Finally, I bought a 26-foot Cape Cruiser which I estimate to be about 8000# of towed weight when loaded for a weekend trip. The trailer for this boat is brand new, and has factory installed surge brakes. Towing with the Ford, I can most certainly feel the trailer pushing the truck when I start braking, at which point the surge brakes are activated and the trailer begins to use its own brakes to slow down. To me, this surge forward is very disconcerting. It feels very unstable, even in the much heavier, and much longer wheelbase truck. I can foresee this being a real safety issue when towing in snowy/icy winter conditions. So, I will be removing the surge system and replacing it with an electric over hydraulic system before winter.
I bring this up for the following reason... As someone that has experience towing with a short wheelbase vehicle, there is absolutely no way I would recommend surge brakes for that setup. I would rather have no brakes at all than be pushed around by unstable and unpredictable activation of surge brakes.
Honestly, I don't think trailer brakes are even necessary when towing a 16-foot C-Dory with a short wheelbase vehicle. However, I do see how they could be beneficial if one were to choose to use them. But, there really is no need for an expensive electric over hydraulic brake system, and I wholeheartedly recommend against using surge brakes. I believe that (even with the noted possibility of increased maintenance) standard electric brakes - and a good brake controller - would be the best fit for this type of setup.
That's my two cents. Do with it what you will.