While both the vaccines have age "recommendations," their efficacy is much more significant if it is GIVEN previous to any sexual activity. No parent wants to hear their daughter or son is, to some extent, sexually active by 13, but that is what national surveys show. Every parent says " not my daughter/son" but when the kids get interviewed in a totally anonymous situation, they are bluntly honest, and that is where the numbers come from.
So in an average person, the FDA "GUESSES THAT BY 26-27 SOME SEXUAL ACTIVITY HAS TAKEN PLACE, BUT THERE HAVE NOT BEEN TONS OF MULTIPLE PARTNERS, AND THEREFORE EXPOSURE TO THE VIRUS ODDS ARE STILL LOW. AFTER THAT POINT, THEY FEEL THAT MOST PEOPLE HAVE HAD ENOGHT PARTNERS TO HAVE RUN INTO IT.
Sorry about the caps, lock was on and it's too late to retype it all.