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If Windowed maxes it out, it would mostly indicate that the driver has more work when compositing the desktop vs using exclusive full screen.
Now if you would see less than maxed CPU *and* GPU load noticeably under 100%, then there would be something odd going on as that would imply bottleneck is somewhere else. Note that exactly 100% GPU load is not always possible, 97-99% is totally fine and still indicates fully maxed GPU.