It works much the same as a cloud layer v2's coverage slider - when no density fractal(essentially just a blending shader) is used then there will be a complete, foggy coverage that only increases/decreases in overall coverage/density when adjusted.
Once you use a density fractal, though, the cloud surface layer then has something to read as a blend shader and controls coverage based on the density fractal, instead of a completely foggy coverage.
It's just the same idea for a surface layer or distribution shader's coverage.