diff --git a/services/core/java/com/android/server/wm/BackgroundLaunchProcessController.java b/services/core/java/com/android/server/wm/BackgroundLaunchProcessController.java
index e88cfbf6986e6..527edc13931a1 100644
--- a/services/core/java/com/android/server/wm/BackgroundLaunchProcessController.java
+++ b/services/core/java/com/android/server/wm/BackgroundLaunchProcessController.java
@@ -190,6 +190,11 @@ class BackgroundLaunchProcessController {
                 return false;
             }
             List<IBinder> binderTokens = getOriginatingTokensThatAllowBal();
+            if (binderTokens.isEmpty()) {
+                // no tokens to allow anything
+                return false;
+            }
+
             // The callback will decide.
             return mBackgroundActivityStartCallback.isActivityStartAllowed(
                     binderTokens, uid, packageName);