I just barely managed to get this to work, but I can now confirm Taxing 14 with Builders+Miners with 100%. The general idea is to use the spare builders to hold and release the crowd. Unfortunately, this is easier said than done because the release rate is working against you. I ended up finishing the holding space just in the nick of time, and I used all 30 builders. It would definitely merit a replay if I had the capabilities to make one.
I suspect some other 2-skill permutations are also possible for the level. I'll take another look when I have time.
EDIT: Builders+Diggers and Bombers+Builders are also confirmed. Sadly, I haven't been able to save 100% with the former because it requires a couple more bridges than Builders+Miners. Unless someone finds a way to hold and release the crowd using no more than 8 builders, I doubt 100% will be possible.
The Bombers+Builders solution is arguably the most straightforward of all the two-skill solutions for the level. Being able to use up to four bombers makes handling the crowd easy.