Safe is a matter of opinion. I could be unsafe with a single axle trailer at 2500 lbs with ALL the payload in the back of the trailer, with it fish tail swaying back and forth. This little trailer COULD put you in the ditch!
Meanwhile, the person that has thing balanced out, at 5times that weight is doing just fine! Weight IMHO is not all the end all be all of towing.
Some will say unsafe is going up a hill at 50 mph. Others are happy on a freeway grade of 30-40 mph. 30-40 would be unsafe to the person wanting to go at least 50 all the time!
With this in mind. The trailer gvwr you saw is the total of the axels gvwr. You then have your hitch wt % above this for a max you can load the trailer.
Most trailers if you look in a kitchen cabinet, have a as weighed at the factory with those options, LP, water full etc, then a remaining payload after this.
If you are full timing, a trailer with more payload will be a plus over one with less, and higher axel ratings.
Marty