Persistent tail swinging is behavioral and is related to temperament and/or the animal's association to its current situation. I bet the steer does not have the problem when released and relaxed.
A good piece of advice I was given by a great calf breaker a few years ago was to never tie a calf before they are tame. She claimed that a big part of keeping the animal "quiet", including the tail, was to early on condition them to be relaxed when being handled. Since following this advice our problem with excess tail swinging has all but disappeared.
The first few times a calf is handled will set their mental tone for a long time to a halter, leading, tying, grooming chute, rinsing/blowing, etc.
Of course there will always be those high strung animals that are very difficult to relax.