Actually on the APEC site, it listed most countries' immigration departments as the responsible authority to issue the cards - and that for the US would be DHS.
And US is a 'transitional' member of APEC that's why USG can make this law and be able to provide these cards.
Interestingly enough the actual law states "all eligible persons" - not US citizens. It be super helpful if this would be extended to LPRs as well.. but lets see what exact rules DHS comes out with.