The Yomiuri Shimbun newspaper reported that the Japanese Government is considering the measures, with a decision on spectator attendance to be taken next month.
Overseas fans have been banned from attending the Games amid the COVID-19 pandemic, but organisers have held off on a decision on domestic fans to date.
A decision is likely to be made towards the end of June, with state of emergency measures in 10 areas including Tokyo set to expire on June 20.
Japan is prioritising vaccinations for the elderly.
