It seems RAW they could go a few directions:
1. They make AirTags follow the same rules as every other app.
2. They introduce a new toggle that users can grant to Tile that gives them the same abilities as AirTags.
3. They introduce a new entitlement that can be granted to developers who apply for that give them the access that AirTags has.
They've taken #3 for both alternative stores and web downloads so I imagine that would take it here.
If that ends up meaning that competitors can make Bluetooth headphones with the functionalities of Airpods, I'm all for it !
4. They make 'Find My' available to competitors