From the discussion on fop-users:

Dirk:
I've got some strange behaviour of the fop-mechanisms when I try to 
force a page break from within a table. Basically the page breaks 
seem to have no effect, as long as the height of an enclosing row 
is not reached. I'm using fop-0.93.

Vincent:
Indeed. Any forced break occuring before the minimum row height is
reached is removed. I vaguely remember a post on fop-dev explaining the
reason of such a behavior, but I can't retrieve it.
Anyway, this doesn't look desirable to me, and your question seems to
confirm my feeling ;-) Any other opinions on this?

Andreas:
Even funnier is that, if you add a bit of text after the block with
the forced break, that text simply gets swallowed. It disappears with
the page-break.

Example for illustration:

<?xml version="1.0" encoding="UTF-8"?>
<fo:root xmlns:fo="http://www.w3.org/1999/XSL/Format"><!-- defines page layout -->
	<fo:layout-master-set>
		<fo:simple-page-master master-name="1" page-height="297mm"
			page-width="210mm">
			<fo:region-body />
		</fo:simple-page-master>
	</fo:layout-master-set>
	<fo:page-sequence master-reference="1">
		<fo:flow flow-name="xsl-region-body">
			<fo:table table-layout="fixed" width="100%">
				<fo:table-body>
					<fo:table-row height="10">
						<fo:table-cell display-align="auto"
							text-align="start">
							<fo:block linefeed-treatment="ignore"
								font-family="Helvetica" font-size="12pt">
								Page 1
							</fo:block>
						</fo:table-cell>
					</fo:table-row>
					<fo:table-row height="10">
						<fo:table-cell display-align="auto"
							text-align="start">
							<fo:block break-after="page" />
						</fo:table-cell>
					</fo:table-row>
					<fo:table-row>
						<fo:table-cell display-align="auto"
							text-align="start">
							<fo:block linefeed-treatment="ignore"
								font-family="Helvetica" font-size="12pt">
								Page 2
							</fo:block>
						</fo:table-cell>
					</fo:table-row>
				</fo:table-body>
			</fo:table>
		</fo:flow>
	</fo:page-sequence>
</fo:root>