The rule is vague. If you sell your seats on the plane, and you come along with a child under 13 and there are no seats "together", the what do you do?
If you are an airline with assigned seats, you are not going to move a passenger that is already paid for a seat. If you are Southwest, you are not going to run around asking people who have already occupied a seat to move. So, either the child sits by him/her self or you tell the purchaser that no seats are available that are "together".
The DOT needs to earn their salary and give a specific recipe for how this is accomplished. Such crap is like the EPA saying that airlines should do their very best to not produce any hydrocarbons or oxides of nitrogen during flight.
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