Biologically active parameters
RF EMFs have negative effects as they interfere with biological, chemical and electrical systems in living organisms. Pulsed EMFs are usually much more biologically active than non-pulsed. 
The following factors have harmfull effect:
No. 1 frequency, duration, power density, and type of exposure
No. 2 modulation, polarization, pulsation, directionality and beam concentration, harmonics and heterodyning
No. 3 combination of multiple radiation sources
No. 4 amplifying effects of different types of radiation
The current EU legislation just regulates the effects of No. 1 factors (frequency, duration, power density and type of exposure) , but takes not into account the effects of the factors No. 2, 3, 4 
Moreover, the current regulations are based on the mean value of the emitted EMF intensity. Where the peak values of the pulses themselves are generally very high, the contribution of these pulses to the average emitted EMF intensity is relatively low because they do not occur so often in each second.
A comparison as an example: you immerse your hand in 20° Celsius water for 50 seconds and then in 100° Celsius hot water for only 10 seconds; now we can claim that the average temperature in the measured 60 seconds was 33.33° Celsius, which is a well tolerated temperature. The part of your skin that was in 100° Celsius water for 10 seconds will definitely be scalded, and still we can say, "That was just a little 10-second peak."
1 Pall 2018: Wi-Fi is an important threat to human health; https://www.sciencedirect.com/science/article/pii/S0013935118300355
2 Panagopoulos, 2019: Comparing DNA damage induced by mobile telephony and other types of man-made electromagnetic fields; Mutation research 781; https://www.sciencedirect.com/science/article/abs/pii/S1383574218300991
3 Directive 2013/35/EU, Irish STATUTORY INSTRUMENTS No. 337 of 2016 page 7, point 7b