11.9.1d is to be used when there is a specified number of rows and columns. When there are not specific number, for example the question might say list 5 items in the table, then it is up to the transcriber to decide how many rows to show or to simply put in a transcriber's note saying that in print there are x number of rows.
In Sample 11-17 the directions to not say how many of the rows are to be used, it could be one or several, in Sample 11-18 it also does not say how many of the blank rows need to be used. The dash in both signifies possible answers.
I hope this helps.