Japan's lack of a unified vaccination passport and limited testing capacity is threatening ambitions to reopen the economy at a crucial year-end period when restaurants earn up to a half of their annual revenue and travel agencies are at their busiest.

This means businesses, wary of another pandemic wave through winter, are not rehiring laid-off staff or ordering more supplies until they know more about what the reopening plan will look like and how long they can stay open. Local authorities have been largely left to fend for themselves, creating a patchwork of rules and compliance programs.

At stake is how quickly Japan can recapture some of the $44 billion spent by foreign tourists in 2019 and whether the estimated $53 billion in pent-up domestic spending can be unleashed to jump-start the battered economy.