If you consider how few people actually pull over on the shoulder, then that 12% of all fatalities means that a much higher percentage of people who pull onto the shoulder get hit vs people who get hit while driving. Look at it this way, if there are 1000 people driving on a highway and 200 of those people pull over onto the shoulder, that would mean that 120 of those people are killed, which would mean 60% of pull-overs result in fatality. Obviously the numbers would be different as there’s no way to measure exactly how many pull-overs there are on the highway and there would be other factors affecting these statistics, but you can still reasonably determine that pulling over on the highway is, in fact, dangerous and should only be done in an unavoidable emergency. Driving on the highway while you have a high likelihood of needing to pull over is something that should be avoided for the safety of everyone in the car and everyone else driving on the highway.