With help from Kato the problem is resolved. It was indeed a contact issue - the lower side of the EM13 was not making electrical contact with the bronze contact strips in the tender frame. This was due to a very slight raised ridge around the edge of the contacts on the EM13 (apparently a manufacturing issue on some EM13s). It isn't really visible, but you can feel the ridge with your fingernail. I carefully filed the ridge off (but not the contact!), and everything works fine.
I could have achieved the same result by soldering jumpers between the EM13's lower contacts and the frame, but chose not to.
George