What does "doesn't steer" mean? It does not brake? Does not de-clutch? Or does not push? All three must happen for good steering and all can be separate issues.
When adjusted correct with all parts working - clutch is fully engaged and brake is fully dis-engaged when not touching steering lever.
When you start to pull on the lever - clutch must disengage BEFORE brake starts to grap.
Pull hard and break grabs hard.
An easy test. Park on a steep hill, put it in gear (with engine running) and start going up - letting go of steering levers. Then - slowly pull back on them. If all is adjusted correctly - you will get to a point that even when in gear - the crawler will roll backwards easily. Pull a little more and it will stop and the engine will sound just the same (not laboring as if the clutches were dragging).
To adjust - first you adjust the brake-band size by cranking the size-adjuster tight and then back off one turn. Then you adjust the linkage inside the clutch-housing to get brake and declutch timing correct.