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I've been asked to write recommendations in the past and don't give the applicant a copy because of the rare possibiilty it could be passed around with a name change.
In this case since the applicant will see the letter, I would do as you say and try to figure out why they think they are qualified.
I've tried to tell the truth because if the person turns out to be a wonderful employee or whatever, that's terrific. But if I write a nice recommendation, esp. knowing the person isn't qualified, then the person/company on the receiving end won't be so quick to accept any great recommendations if they feel I didn't tell the truth on the first one.
If this is for the GLO, it is very important that the GLO know upfront if you think the applicant can handle the job, if not, it may make the entire GLO look bad and/or hurt feelings for a long time.
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