Who reads the ToS? Same ones that read the EULA, and the ones that actually read the Read Before Posting sticky thread before making thier first post.

So... hardly anyone. But you are still bound by them. (doh!

)
Just for practicality sake, Supercell should allow for more than one village, given how common a thing it is already. If they cracked down and enforced the ToS, they'd tick of much off thier playerbase.
I've been thinking about how to deal with the end-game dilemma of 'why keep playing?', as well as the 'what happened to the fun I had early on in game?' Multiple villages, either full villages, or some partial function villages, would help with some of these issues to a point, with adding some much needed replay value. Many games have this, and is quite common. But they (Supercell) need to hammer out how they want to do this, since it is thier game, and adding such a thing would cause a sudden explosion of new villages, and could (but not totally sure) really stress out thier servers.
So...

there you have it... total uncertainty.