Easy test. 
Chock the trailer wheel and back up slightly. Have someone watch the coupler while you apply backing pressure. Does the tongue compress? It should shorten about an inch. If it does then at least the surge cylinder is moving. If it doesn't then it's seized or the backing solenoid is stuck on and you have no  trailer brakes at any time. 
Once you know the hitch end is working then its time to check each wheel.  With a tandem I'd be tempted to remove one wheel and apply backing pressure as before then try to spin the empty hub. No pressure - spins. Apply pressure  - stops. The usual test is to try to back a load up a steepish gravel hill. The trailer wheels should lock  when the tongue compresses and skid. 
You can sometimes use a 2x4 as a lever to apply pressure to the tongue for testing. Loop the safety chains around one end, rest on the hitch end and pull on the long end to apply or remove pressure.   Jack up one side and have a bud check for braking at each wheel. 
All above assumes properly installed and bled lines with a full reservoir.