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I think you've missunderstood things. Taking hormones and similar to halt your growth is not the same as surgery, and not permanent. If you when you're 18 realise no, I'm a boy after all, (which is very unlikely from what I've read) you can still be a boy, however, hitting puberty and turning into someone you don't want, and deciding to change when you're 18, is usually alot harder.
Yeah so thats why we invented laws that err on the side of caution. you can still take hormones and have your cock removed at 18, you cannot grow a new one thats functional if and when you realized youve made a mistake.