Because they *can* be used for nuclear weapons delivery
Launching an ICBM without a clearly publish test trajectory(and sometimes even with) is going to set off launch detection systems and send everyone to high alert. Since it *could* carry a nuclear weapon it gets assumed to be carrying a nuclear weapon and will earn retaliation in kind (aka nuclear weapons heading your way)
ICBMs also don’t carry huge payloads. The US Minuteman III launches 3 warheads in reentry vehicles for a total payload of only about 1000 kg total. A wayyy cheaper Tomahawk carries a 450 kg conventional payload
You want unambiguous and cost effective weapons. Surface to surface missiles and short range ballistic missiles are wayyy cheaper and wayyyyyy less likely to get nukes flying back at you
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