You need a table that contains one row for each potential email recipient.
Then create a slice over that table that only contains the rows from the table that should receive an email. Filter the slice based on whether that individual has pending “notifications” that need to be sent.
Then create the Report to run against the slice and specify “ForEachRowInTable”. This will create one email for each person in the slice.
In the Report template, include a Start expression to select all of the “notifications” for the current user. In your case, the Start would select and list 11 “notifications” for the first user and 7 “notifications” for the second user.