I don't know a thing about the transmission filter. Sorry. When I had the leak I mentioned in a previous post, the clutch oil would slowly leak out until it got so low that the steering clutches wouldn't release. There was not enough oil to actuate the pistons that release the clutches. All I had to do was refill it with oil and the steering worked again just fine. I'm not saying you don't have to bleed anything, as I don't know for sure. But I didn't have to after refilling the clutch oil, and I don't see anything in the dis-assembly/reassembly instructions, or in the maintenance instructions about bleeding anything.
Here are some thoughts. If the dozer drives forward and reverse, it is obvious that the clutches are both engaged. Until one of the clutches disengages, you will not turn. Even without a steering brake being engaged, the dozer will turn gradually in the direction of a disengaged clutch, assuming you are on level ground. The brake on that side only increases the turn rate. I'm not sure how you would confirm that you have oil going to the pistons that disengage the clutches. I'm assuming you verified that the plungers are being pushed in when you pull back on the steering handles.
As I mentioned earlier, if you do not have enough fluid in the clutch fluid tank, you will never disengage the clutches. The clutch fluid dipstick is the one under the main clutch pedal. Make sure it is at least touching the dipstick, and preferably in the crosshatched area of the dipstick. If that is ok, and the plungers are being depressed, I don't know what to tell you to do next. I will tell you that if you have the brake band too tight, it will try to stop the rotation, while the steering clutch will try to rotate it, causing the engine to bog down. Good luck with it.
EDIT: I was just looking at the Operation and Maintenance manual and realized for the first time that the D21 doesn't show a main clutch case and fill tube/dipstick. Now I'm not sure what feeds oil to your steering clutch cylinders. I would guess it comes from the transmission case. And the filler tube/dipstick under the main clutch pedal is for the transmission case on a D21, whereas it is for the clutch case on a D20.
I also found the procedure for the transmission strainer. It does say to remove and clean it, but if it is broken or damaged to replace it. Sorry for the confusion.