Why RF exposure limits are based on power density averaged over time (6 minutes for controlled exposure, 30 minutes for uncontrolled), not on peak power. Modulation duty cycle is the fraction of transmit time the carrier is actually at full output: SSB voice is roughly 20 percent, CW around 40 percent, while FM, RTTY and many digital modes are 100 percent. Because a low duty cycle mode puts out less average power for the same PEP, you can run a higher peak power and still stay under the same exposure limit.
Watch out The reverse statement, that a higher duty cycle allows more power, has it backwards: a 100 percent duty cycle mode like FM delivers full average power the whole time, so it is the most restrictive. Duty cycle never exempts a station from evaluation; exemptions are based on power and frequency thresholds in 97.13(c).
Exposure is averaged, so less on-time means more allowed power. SSB beats FM for headroom.