considering eye doctors start getting useful effects around 200 mW of CW laser light for retinal surgery..... That may be a reasonable standard for non coherent light. You can make a lesion with a lot less. You can have photochemical bleaching with a lot less...
Many big companies say damage can start at 15 mW. I've heard for years that the Spectra Physics and Coherent internal standards were 15 mW and up for start of permanent damage. Where the source of that number comes from has probably been long forgotten.
Steve