This is a design question for the Phone app, not for pulseaudio. The Phone app might choose to, for example, play the ringtone just through headphones for the first two or three seconds, to give you a chance to answer the call without waking up people nearby; and then switch to playing through speaker, in case your headphones aren't in your ears. I'm not saying it should necessarily do that, that's just one possibility.
Unfortunately, the Phone app spec currently doesn't even mention ringing. <https://goo.gl/0hy3A1> The design for ringing should also describe what should happen if other audio is playing when the call arrives.
This is a design question for the Phone app, not for pulseaudio. The Phone app might choose to, for example, play the ringtone just through headphones for the first two or three seconds, to give you a chance to answer the call without waking up people nearby; and then switch to playing through speaker, in case your headphones aren't in your ears. I'm not saying it should necessarily do that, that's just one possibility.
Unfortunately, the Phone app spec currently doesn't even mention ringing. <https:/ /goo.gl/ 0hy3A1> The design for ringing should also describe what should happen if other audio is playing when the call arrives.