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Okay.
I agreed to the terms and conditions and became a subscriber when I was about 11 years old.
However, i think the age 13 requirement is about a different law.
https://en.wikipedia.org/wiki/Children%27s_Online_Privacy_Protection_Act
In the USA you cannot *track information/collect data* of people under the age of 13 (without their parental consent). Valve does track and collect information on all users tho, by gathering information of game searches, games played, using information about what we wishlist. Valve probably does this in other ways too.
Valve likely doesn't want to have to deal with creating a system to selectively "not do this" for users indicating they are under 13. Easier to say you must be 13 to create a Steam account.. OR if you are younger, you must have parents create account/thus the parents consent.. So that they can collect data from us all :)