The problem here is: Each country has a unique card system. So debit cards/ credit cards in Italy use another card system than debit cards/credit cards in Germany. Within iOS those are represented by unique *.plist files within the core iOS. As a developer for Apple Pay implementation for two countries, I know what I'm talking about. Those *.plist files are basically "hidden" (within the developer we talk about enabled/disalbed) as this is for us a hint, that this country will not be activated in the near future. If we see a country being enabled by beta 2 or 3, this gives us a pretty good guess that Apple Pay will be available shortly after the launch.
There are some reasons, why even iOS x.x.x had 7+ betas. A financial institute interested in launching Apple Pay receives a beta of an OS a working day earlier than developer. It is not beta (except the "GM") like for developer, it is a very basic beta (Settings app for the Card Setup; basic Wallet App)