Well I was only directed to take Rory off leash if I felt there was going to be a fight so as not to entangle her and leave her defensless. I'm not sure that applies t your situation though but I was trying to show how it can make them feel more vulnerable.
It really seems to me as if she is not aggressive yet, just frusterated while on the leash and i see your dilema is that you dont want her frusteration to turn to aggression. Is that correct?
When Rory was a pup she used to whine, cry, and pull at her leash to get to see the other dogs, all in friendliness though and it took a while for her to be trained to not make such a commotion.
I would keep a eye out to spot a potential issue hopefully before she did adn I would immediatly make her sit adn stay. I would kneel down behind her and keep repeating sit and stay, sometimes distracting her with treats from my pocket. After the other dog had passed us I would then continue our walk. Be sure to tell her firmly because any hint of consolation will make her think you are praising her for her actions, make sure she knows you mean business.
Did you also mention that once you actually get to the dog then she seems fine? If so it took me a while to realize that a lot of the times Rory just wanted to say Hi and she calmed down after a couple of nose kisses. Other good dog people will say "oh she's just a pup"! and have a rememberance of when there dog was like that too. Maybe ask them, "is it okay if she says hi real fast"?
A quick hello is good because any longer and you'll get tangeled and the other owner aggrivated, ha ha!
This does not work however when you are in a store, balancing a dog, toys, and a 50lb bag of dog food. In those extreme cases before she grew obediant I would literally have to straddler her betwenn my legs and hold her there (she was a big pup).
Obviously this is going to work a lot better if your pup knows the sit and stay commands adn I also noticed that the more dogs Rory gets to play with the less excited she becomes when she see's more. Socialization is the key!