There are many foreign nationals who are members of Global Entry, but the US only sends cards to US citizens/residents or Mexican nationals. Essentially anyone who would need it to cross a land border, while they skip sending a card to other foreigners presumably under the impression that they will never need it, which they wouldn't 99% of the time as the passport is linked to the GE membership. Unfortunately such foreigners--as now--would not be allowed into the Verified Traveller lane or the current Trusted Traveler lane--which has no benefits other than a separate lane (still need to remove laptops/belts, etc)--while the new Verifed Traveller lines would exempt you from that.