It works in a different way. If you have users you want to have cards and they don't have accounts in the system, you can send them money to create cards to their emails, they receive a link that lets them register, they get the money you sent them in their wallets and proceed with ordering cards. Later on you can send money to these cards via API from your business account.
Do they need to have verified accounts?
Same rules as for other users. Before verification their cards will have a lifetime limit of $2,500 as well as a few other funding and spending limits.