and of course what is being IGNORED in the replies about premature brake lock-up is that the wheels that lock up first are the lightest loaded ones - - and it DOESN'T MATTER.
a) If you are braking THAT HARD with horses on board you are getting into situations beyond your capabilities - please stop doing that for the horses' sake(s).
b) The axle with the additional load isn't locking up because it is carrying more load - and will therefore lock-up LATER than if it had been equally loaded.
Bottom line: braking is ALL about coefficient of friction, NOT about area of contact or how many wheels are involved.
If you really want to solve this for minimum cost WITHOUT raising the C of G do the geometry and figure how many cm of tire size increase on the front axle will get you equal load.
Don't worry about equal braking - truck drivers with lift axles don't
Preemptive comment about being cut off and having to brake hard; Again, don't get into those situations.
I towed 4 horses about 150 miles yesterday with no trailer brakes - not a problem, I drive very conservatively in consideration for the horses and I don't "invite" people to cut me off.