Japan's initiative is focused on "green open access" which is different from pay-to-publish. I recommend the section titled "Green OA" in the submitted article. Relevant quote:
"Japan’s move to greater access to its research is focusing on 'green OA' — in which authors make the author-accepted, but unfinalized, versions of papers available in the digital repositories, says Seiichi.
Seiichi says that gold OA — in which the final copyedited and polished version of a paper is made freely available on the journal site — is not feasible on a wide scale. That’s because the cost to make every paper free to read would be too high for universities."
"Japan’s move to greater access to its research is focusing on 'green OA' — in which authors make the author-accepted, but unfinalized, versions of papers available in the digital repositories, says Seiichi.
Seiichi says that gold OA — in which the final copyedited and polished version of a paper is made freely available on the journal site — is not feasible on a wide scale. That’s because the cost to make every paper free to read would be too high for universities."