diff --git a/Tethering/common/TetheringLib/src/android/net/TetheringManager.java b/Tethering/common/TetheringLib/src/android/net/TetheringManager.java
index f123dca..0ac97f0 100644
--- a/Tethering/common/TetheringLib/src/android/net/TetheringManager.java
+++ b/Tethering/common/TetheringLib/src/android/net/TetheringManager.java
@@ -333,6 +333,11 @@
     public static final int TETHER_ERROR_UNKNOWN_REQUEST = 17;
     @FlaggedApi(Flags.FLAG_TETHERING_WITH_SOFT_AP_CONFIG)
     public static final int TETHER_ERROR_DUPLICATE_REQUEST = 18;
+    /**
+     * Never used outside Tethering.java.
+     * @hide
+     */
+    public static final int TETHER_ERROR_BLUETOOTH_SERVICE_PENDING = 19;
 
     /** @hide */
     @Retention(RetentionPolicy.SOURCE)
diff --git a/Tethering/src/com/android/networkstack/tethering/Tethering.java b/Tethering/src/com/android/networkstack/tethering/Tethering.java
index c0192dd..b50831d 100644
--- a/Tethering/src/com/android/networkstack/tethering/Tethering.java
+++ b/Tethering/src/com/android/networkstack/tethering/Tethering.java
@@ -43,6 +43,7 @@
 import static android.net.TetheringManager.TETHERING_WIFI;
 import static android.net.TetheringManager.TETHERING_WIFI_P2P;
 import static android.net.TetheringManager.TETHERING_WIGIG;
+import static android.net.TetheringManager.TETHER_ERROR_BLUETOOTH_SERVICE_PENDING;
 import static android.net.TetheringManager.TETHER_ERROR_INTERNAL_ERROR;
 import static android.net.TetheringManager.TETHER_ERROR_NO_ERROR;
 import static android.net.TetheringManager.TETHER_ERROR_SERVICE_UNAVAIL;
@@ -707,8 +708,7 @@
             // If tethering is already enabled with a different request,
             // disable before re-enabling.
             if (unfinishedRequest != null && !unfinishedRequest.equalsIgnoreUidPackage(request)) {
-                enableTetheringInternal(type, false /* disabled */,
-                        unfinishedRequest.getInterfaceName(), null);
+                enableTetheringInternal(false /* disabled */, unfinishedRequest, null);
                 mEntitlementMgr.stopProvisioningIfNeeded(type);
             }
             mPendingTetheringRequests.put(type, request);
@@ -719,7 +719,7 @@
                 mEntitlementMgr.startProvisioningIfNeeded(type,
                         request.getShouldShowEntitlementUi());
             }
-            enableTetheringInternal(type, true /* enabled */, request.getInterfaceName(), listener);
+            enableTetheringInternal(true /* enabled */, request, listener);
             mTetheringMetrics.createBuilder(type, callerPkg);
         });
     }
@@ -766,7 +766,10 @@
     void stopTetheringInternal(int type) {
         mPendingTetheringRequests.remove(type);
 
-        enableTetheringInternal(type, false /* disabled */, null, null);
+        // Using a placeholder here is ok since none of the disable APIs use the request for
+        // anything. We simply need the tethering type to know which link layer to poke for removal.
+        // TODO: Remove the placeholder here and loop through each pending/serving request.
+        enableTetheringInternal(false /* disabled */, createPlaceholderRequest(type), null);
         mEntitlementMgr.stopProvisioningIfNeeded(type);
     }
 
@@ -774,9 +777,10 @@
      * Enables or disables tethering for the given type. If provisioning is required, it will
      * schedule provisioning rechecks for the specified interface.
      */
-    private void enableTetheringInternal(int type, boolean enable,
-            String iface, final IIntResultListener listener) {
-        int result = TETHER_ERROR_NO_ERROR;
+    private void enableTetheringInternal(boolean enable, @NonNull final TetheringRequest request,
+            final IIntResultListener listener) {
+        final int type = request.getTetheringType();
+        final int result;
         switch (type) {
             case TETHERING_WIFI:
                 result = setWifiTethering(enable);
@@ -785,7 +789,7 @@
                 result = setUsbTethering(enable);
                 break;
             case TETHERING_BLUETOOTH:
-                setBluetoothTethering(enable, listener);
+                result = setBluetoothTethering(enable, listener);
                 break;
             case TETHERING_NCM:
                 result = setNcmTethering(enable);
@@ -794,17 +798,17 @@
                 result = setEthernetTethering(enable);
                 break;
             case TETHERING_VIRTUAL:
-                result = setVirtualMachineTethering(enable, iface);
+                result = setVirtualMachineTethering(enable, request);
                 break;
             default:
                 Log.w(TAG, "Invalid tether type.");
                 result = TETHER_ERROR_UNKNOWN_TYPE;
         }
 
-        // The result of Bluetooth tethering will be sent by #setBluetoothTethering.
-        if (type != TETHERING_BLUETOOTH) {
-            sendTetherResult(listener, result, type);
-        }
+        // The result of Bluetooth tethering will be sent after the pan service connects.
+        if (result == TETHER_ERROR_BLUETOOTH_SERVICE_PENDING) return;
+
+        sendTetherResult(listener, result, type);
     }
 
     private void sendTetherResult(final IIntResultListener listener, final int result,
@@ -843,13 +847,12 @@
         return TETHER_ERROR_INTERNAL_ERROR;
     }
 
-    private void setBluetoothTethering(final boolean enable, final IIntResultListener listener) {
+    private int setBluetoothTethering(final boolean enable, final IIntResultListener listener) {
         final BluetoothAdapter adapter = mDeps.getBluetoothAdapter();
         if (adapter == null || !adapter.isEnabled()) {
             Log.w(TAG, "Tried to enable bluetooth tethering with null or disabled adapter. null: "
                     + (adapter == null));
-            sendTetherResult(listener, TETHER_ERROR_SERVICE_UNAVAIL, TETHERING_BLUETOOTH);
-            return;
+            return TETHER_ERROR_SERVICE_UNAVAIL;
         }
 
         if (mBluetoothPanListener != null && mBluetoothPanListener.isConnected()) {
@@ -857,8 +860,7 @@
             // When bluetooth tethering is enabled, any time a PAN client pairs with this
             // host, bluetooth will bring up a bt-pan interface and notify tethering to
             // enable IP serving.
-            setBluetoothTetheringSettings(mBluetoothPan, enable, listener);
-            return;
+            return setBluetoothTetheringSettings(mBluetoothPan, enable);
         }
 
         if (!enable) {
@@ -870,8 +872,7 @@
                         TETHERING_BLUETOOTH);
             }
             mPendingPanRequestListeners.clear();
-            sendTetherResult(listener, TETHER_ERROR_NO_ERROR, TETHERING_BLUETOOTH);
-            return;
+            return TETHER_ERROR_NO_ERROR;
         }
         mPendingPanRequestListeners.add(listener);
 
@@ -883,6 +884,7 @@
             mBluetoothPanListener = new PanServiceListener();
             adapter.getProfileProxy(mContext, mBluetoothPanListener, BluetoothProfile.PAN);
         }
+        return TETHER_ERROR_BLUETOOTH_SERVICE_PENDING;
     }
 
     private class PanServiceListener implements ServiceListener {
@@ -900,8 +902,9 @@
                 mIsConnected = true;
 
                 for (IIntResultListener pendingListener : mPendingPanRequestListeners) {
-                    setBluetoothTetheringSettings(mBluetoothPan, true /* enable */,
-                            pendingListener);
+                    final int result = setBluetoothTetheringSettings(mBluetoothPan,
+                            true /* enable */);
+                    sendTetherResult(pendingListener, result, TETHERING_BLUETOOTH);
                 }
                 mPendingPanRequestListeners.clear();
             });
@@ -930,8 +933,8 @@
         }
     }
 
-    private void setBluetoothTetheringSettings(@NonNull final BluetoothPan bluetoothPan,
-            final boolean enable, final IIntResultListener listener) {
+    private int setBluetoothTetheringSettings(@NonNull final BluetoothPan bluetoothPan,
+            final boolean enable) {
         if (SdkLevel.isAtLeastT()) {
             changeBluetoothTetheringSettings(bluetoothPan, enable);
         } else {
@@ -940,9 +943,8 @@
 
         // Enabling bluetooth tethering settings can silently fail. Send internal error if the
         // result is not expected.
-        final int result = bluetoothPan.isTetheringOn() == enable
+        return bluetoothPan.isTetheringOn() == enable
                 ? TETHER_ERROR_NO_ERROR : TETHER_ERROR_INTERNAL_ERROR;
-        sendTetherResult(listener, result, TETHERING_BLUETOOTH);
     }
 
     private void changeBluetoothTetheringSettingsPreT(@NonNull final BluetoothPan bluetoothPan,
@@ -1061,14 +1063,15 @@
         }
     }
 
-    private int setVirtualMachineTethering(final boolean enable, String iface) {
+    private int setVirtualMachineTethering(final boolean enable,
+            @NonNull final TetheringRequest request) {
+        final String iface = request.getInterfaceName();
         if (enable) {
             if (TextUtils.isEmpty(iface)) {
                 mConfiguredVirtualIface = "avf_tap_fixed";
             } else {
                 mConfiguredVirtualIface = iface;
             }
-            final TetheringRequest request = getOrCreatePendingTetheringRequest(TETHERING_VIRTUAL);
             enableIpServing(request, mConfiguredVirtualIface);
         } else if (mConfiguredVirtualIface != null) {
             ensureIpServerStopped(mConfiguredVirtualIface);
@@ -1101,6 +1104,19 @@
     }
 
     /**
+     * Create a placeholder request. This is used in case we try to find a pending request but there
+     * is none (e.g. stopTethering removed a pending request), or for cases where we only have the
+     * tethering type (e.g. stopTethering(int)).
+     */
+    @NonNull
+    private TetheringRequest createPlaceholderRequest(int type) {
+        final TetheringRequest request = new TetheringRequest.Builder(type).build();
+        request.getParcel().requestType = TetheringRequest.REQUEST_TYPE_LEGACY;
+        request.getParcel().connectivityScope = CONNECTIVITY_SCOPE_GLOBAL;
+        return request;
+    }
+
+    /**
      * Gets the TetheringRequest that #startTethering was called with but is waiting for the link
      * layer event to indicate the interface is available to tether.
      * Note: There are edge cases where the pending request is absent and we must temporarily
@@ -1116,9 +1132,7 @@
 
         Log.w(TAG, "No pending TetheringRequest for type " + type + " found, creating a placeholder"
                 + " request");
-        TetheringRequest placeholder = new TetheringRequest.Builder(type).build();
-        placeholder.getParcel().requestType = REQUEST_TYPE_PLACEHOLDER;
-        return placeholder;
+        return createPlaceholderRequest(type);
     }
 
     private void handleLegacyTether(String iface, final IIntResultListener listener) {
@@ -2414,9 +2428,14 @@
                         break;
                     }
                     case EVENT_REQUEST_CHANGE_DOWNSTREAM: {
-                        final int tetheringType = message.arg1;
+                        final int type = message.arg1;
                         final Boolean enabled = (Boolean) message.obj;
-                        enableTetheringInternal(tetheringType, enabled, null, null);
+                        // Using a placeholder here is ok since we just need to the type of
+                        // tethering to poke the link layer. When the link layer comes up, we won't
+                        // have a pending request to use, but this matches the historical behavior.
+                        // TODO: Get the TetheringRequest from IpServer and make sure to put it in
+                        //       the pending list too.
+                        enableTetheringInternal(enabled, createPlaceholderRequest(type), null);
                         break;
                     }
                     default: