diff --git a/Tethering/common/TetheringLib/src/android/net/TetheringManager.java b/Tethering/common/TetheringLib/src/android/net/TetheringManager.java
index 21f36e8..aa7a244 100644
--- a/Tethering/common/TetheringLib/src/android/net/TetheringManager.java
+++ b/Tethering/common/TetheringLib/src/android/net/TetheringManager.java
@@ -807,6 +807,46 @@
      */
     @SuppressLint("UnflaggedApi")
     public static final class TetheringRequest implements Parcelable {
+        /**
+         * Tethering started by an explicit call to startTethering.
+         * @hide
+         */
+        public static final int REQUEST_TYPE_EXPLICIT = 0;
+
+        /**
+         * Tethering implicitly started by broadcasts (LOHS and P2P). Can never be pending.
+         * @hide
+         */
+        public static final int REQUEST_TYPE_IMPLICIT = 1;
+
+        /**
+         * Tethering started by the legacy tether() call. Can only happen on V-.
+         * @hide
+         */
+        public static final int REQUEST_TYPE_LEGACY = 2;
+
+        /**
+         * Tethering started but there was no pending request found. This may happen if Tethering is
+         * started and immediately stopped before the link layer goes up, or if we get a link layer
+         * event without a prior call to startTethering (e.g. adb shell cmd wifi start-softap).
+         * @hide
+         */
+        public static final int REQUEST_TYPE_PLACEHOLDER = 3;
+
+        /**
+         * Type of request, used to keep track of whether the request was explicitly sent by
+         * startTethering, implicitly created by broadcasts, or via legacy tether().
+         * @hide
+         */
+        @Retention(RetentionPolicy.SOURCE)
+        @IntDef(prefix = "TYPE_", value = {
+                REQUEST_TYPE_EXPLICIT,
+                REQUEST_TYPE_IMPLICIT,
+                REQUEST_TYPE_LEGACY,
+                REQUEST_TYPE_PLACEHOLDER,
+        })
+        public @interface RequestType {}
+
         /** A configuration set for TetheringRequest. */
         private final TetheringRequestParcel mRequestParcel;
 
@@ -866,6 +906,7 @@
                 mBuilderParcel.uid = Process.INVALID_UID;
                 mBuilderParcel.softApConfig = null;
                 mBuilderParcel.interfaceName = null;
+                mBuilderParcel.requestType = REQUEST_TYPE_EXPLICIT;
             }
 
             /**
@@ -1161,6 +1202,14 @@
         }
 
         /**
+         * Get the type of the request.
+         * @hide
+         */
+        public @RequestType int getRequestType() {
+            return mRequestParcel.requestType;
+        }
+
+        /**
          * String of TetheringRequest detail.
          * @hide
          */
@@ -1168,6 +1217,13 @@
         public String toString() {
             StringJoiner sj = new StringJoiner(", ", "TetheringRequest[ ", " ]");
             sj.add(typeToString(mRequestParcel.tetheringType));
+            if (mRequestParcel.requestType == REQUEST_TYPE_IMPLICIT) {
+                sj.add("IMPLICIT");
+            } else if (mRequestParcel.requestType == REQUEST_TYPE_LEGACY) {
+                sj.add("LEGACY");
+            } else if (mRequestParcel.requestType == REQUEST_TYPE_PLACEHOLDER) {
+                sj.add("PLACEHOLDER");
+            }
             if (mRequestParcel.localIPv4Address != null) {
                 sj.add("localIpv4Address=" + mRequestParcel.localIPv4Address);
             }
@@ -1217,7 +1273,8 @@
         public boolean equalsIgnoreUidPackage(TetheringRequest otherRequest) {
             TetheringRequestParcel parcel = getParcel();
             TetheringRequestParcel otherParcel = otherRequest.getParcel();
-            return parcel.tetheringType == otherParcel.tetheringType
+            return parcel.requestType == otherParcel.requestType
+                    && parcel.tetheringType == otherParcel.tetheringType
                     && Objects.equals(parcel.localIPv4Address, otherParcel.localIPv4Address)
                     && Objects.equals(parcel.staticClientAddress, otherParcel.staticClientAddress)
                     && parcel.exemptFromEntitlementCheck == otherParcel.exemptFromEntitlementCheck
diff --git a/Tethering/common/TetheringLib/src/android/net/TetheringRequestParcel.aidl b/Tethering/common/TetheringLib/src/android/net/TetheringRequestParcel.aidl
index 97c9b9a..9863385 100644
--- a/Tethering/common/TetheringLib/src/android/net/TetheringRequestParcel.aidl
+++ b/Tethering/common/TetheringLib/src/android/net/TetheringRequestParcel.aidl
@@ -24,6 +24,7 @@
  * @hide
  */
 parcelable TetheringRequestParcel {
+    int requestType;
     int tetheringType;
     LinkAddress localIPv4Address;
     LinkAddress staticClientAddress;
diff --git a/Tethering/src/com/android/networkstack/tethering/Tethering.java b/Tethering/src/com/android/networkstack/tethering/Tethering.java
index a388624..11b14ed 100644
--- a/Tethering/src/com/android/networkstack/tethering/Tethering.java
+++ b/Tethering/src/com/android/networkstack/tethering/Tethering.java
@@ -51,6 +51,7 @@
 import static android.net.TetheringManager.TETHER_HARDWARE_OFFLOAD_FAILED;
 import static android.net.TetheringManager.TETHER_HARDWARE_OFFLOAD_STARTED;
 import static android.net.TetheringManager.TETHER_HARDWARE_OFFLOAD_STOPPED;
+import static android.net.TetheringManager.TetheringRequest.REQUEST_TYPE_PLACEHOLDER;
 import static android.net.TetheringManager.toIfaces;
 import static android.net.wifi.WifiManager.EXTRA_WIFI_AP_INTERFACE_NAME;
 import static android.net.wifi.WifiManager.EXTRA_WIFI_AP_MODE;
@@ -1031,6 +1032,49 @@
     }
 
     /**
+     * Create a legacy tethering request for calls to the legacy tether() API, which doesn't take an
+     * explicit request.
+     */
+    private TetheringRequest createLegacyTetheringRequest(int type, int connectivityScope) {
+        final TetheringRequest request = new TetheringRequest.Builder(type).build();
+        request.getParcel().requestType = TetheringRequest.REQUEST_TYPE_LEGACY;
+        request.getParcel().connectivityScope = connectivityScope;
+        return request;
+    }
+
+    /**
+     * Create a local-only implicit tethering request. This is used for Wifi local-only hotspot and
+     * Wifi P2P, which start tethering based on the WIFI_(AP/P2P)_STATE_CHANGED broadcasts.
+     */
+    @NonNull
+    private TetheringRequest createImplicitLocalOnlyTetheringRequest(int type) {
+        final TetheringRequest request = new TetheringRequest.Builder(type).build();
+        request.getParcel().requestType = TetheringRequest.REQUEST_TYPE_IMPLICIT;
+        request.getParcel().connectivityScope = CONNECTIVITY_SCOPE_LOCAL;
+        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
+     *       synthesize a placeholder request, such as if stopTethering was called before link layer
+     *       went up, or if the link layer goes up without us poking it (e.g. adb shell cmd wifi
+     *       start-softap).
+     */
+    @NonNull
+    private TetheringRequest getOrCreatePendingTetheringRequest(int type) {
+        TetheringRequest pending = mActiveTetheringRequests.get(type);
+        if (pending != null) return pending;
+
+        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;
+    }
+
+    /**
      * Legacy tether API that starts tethering with CONNECTIVITY_SCOPE_GLOBAL on the given iface.
      *
      * This API relies on the IpServer having been started for the interface by
@@ -1043,7 +1087,7 @@
      * WIFI_(AP/P2P_STATE_CHANGED broadcasts, which makes this API redundant for those types unless
      * those broadcasts are disabled by OEM.
      */
-    void tether(String iface, int requestedState, final IIntResultListener listener) {
+    void legacyTether(String iface, int requestedState, final IIntResultListener listener) {
         if (Build.VERSION.SDK_INT > Build.VERSION_CODES.VANILLA_ICE_CREAM) {
             // After V, the TetheringManager and ConnectivityManager tether and untether methods
             // throw UnsupportedOperationException, so this cannot happen in normal use. Ensure
@@ -1052,7 +1096,7 @@
             return;
         }
         mHandler.post(() -> {
-            int result = tether(iface, requestedState);
+            int result = tetherInternal(iface, requestedState);
             switch (ifaceNameToType(iface)) {
                 case TETHERING_WIFI:
                     TerribleErrorLog.logTerribleError(TetheringStatsLog::write,
@@ -1088,7 +1132,7 @@
         });
     }
 
-    private int tether(String iface, int requestedState) {
+    private int tetherInternal(String iface, int requestedState) {
         if (DBG) Log.d(TAG, "Tethering " + iface);
         TetherState tetherState = mTetherStates.get(iface);
         if (tetherState == null) {
@@ -1114,7 +1158,7 @@
         return TETHER_ERROR_NO_ERROR;
     }
 
-    void untether(String iface, final IIntResultListener listener) {
+    void legacyUntether(String iface, final IIntResultListener listener) {
         if (Build.VERSION.SDK_INT > Build.VERSION_CODES.VANILLA_ICE_CREAM) {
             // After V, the TetheringManager and ConnectivityManager tether and untether methods
             // throw UnsupportedOperationException, so this cannot happen in normal use. Ensure
@@ -1124,13 +1168,13 @@
         }
         mHandler.post(() -> {
             try {
-                listener.onResult(untether(iface));
+                listener.onResult(legacyUntetherInternal(iface));
             } catch (RemoteException e) {
             }
         });
     }
 
-    int untether(String iface) {
+    int legacyUntetherInternal(String iface) {
         if (DBG) Log.d(TAG, "Untethering " + iface);
         TetherState tetherState = mTetherStates.get(iface);
         if (tetherState == null) {
@@ -1145,7 +1189,7 @@
         return TETHER_ERROR_NO_ERROR;
     }
 
-    void untetherAll() {
+    void stopAllTethering() {
         stopTethering(TETHERING_WIFI);
         stopTethering(TETHERING_WIFI_P2P);
         stopTethering(TETHERING_USB);
@@ -1315,7 +1359,7 @@
                 mLog.log("OBSERVED data saver changed");
                 handleDataSaverChanged();
             } else if (action.equals(TetheringNotificationUpdater.ACTION_DISABLE_TETHERING)) {
-                untetherAll();
+                stopAllTethering();
             }
         }
 
@@ -1479,7 +1523,7 @@
 
             mDataSaverEnabled = isDataSaverEnabled;
             if (mDataSaverEnabled) {
-                untetherAll();
+                stopAllTethering();
             }
         }
     }
@@ -1538,7 +1582,7 @@
                 mNotificationUpdater.notifyTetheringDisabledByRestriction();
 
                 // Untether from all downstreams since tethering is disallowed.
-                mTethering.untetherAll();
+                mTethering.stopAllTethering();
             }
 
             return true;
@@ -1553,7 +1597,7 @@
     private void enableIpServing(int tetheringType, String ifname, int ipServingMode,
             boolean isNcm) {
         ensureIpServerStarted(ifname, tetheringType, isNcm);
-        if (tether(ifname, ipServingMode) != TETHER_ERROR_NO_ERROR) {
+        if (tetherInternal(ifname, ipServingMode) != TETHER_ERROR_NO_ERROR) {
             Log.e(TAG, "unable start tethering on iface " + ifname);
         }
     }
diff --git a/Tethering/src/com/android/networkstack/tethering/TetheringService.java b/Tethering/src/com/android/networkstack/tethering/TetheringService.java
index 0c44a38..153b0f7 100644
--- a/Tethering/src/com/android/networkstack/tethering/TetheringService.java
+++ b/Tethering/src/com/android/networkstack/tethering/TetheringService.java
@@ -111,7 +111,7 @@
                 IIntResultListener listener) {
             if (checkAndNotifyCommonError(callerPkg, callingAttributionTag, listener)) return;
 
-            mTethering.tether(iface, IpServer.STATE_TETHERED, listener);
+            mTethering.legacyTether(iface, IpServer.STATE_TETHERED, listener);
         }
 
         @Override
@@ -119,7 +119,7 @@
                 IIntResultListener listener) {
             if (checkAndNotifyCommonError(callerPkg, callingAttributionTag, listener)) return;
 
-            mTethering.untether(iface, listener);
+            mTethering.legacyUntether(iface, listener);
         }
 
         @Override
@@ -200,7 +200,7 @@
             if (checkAndNotifyCommonError(callerPkg, callingAttributionTag, listener)) return;
 
             try {
-                mTethering.untetherAll();
+                mTethering.stopAllTethering();
                 listener.onResult(TETHER_ERROR_NO_ERROR);
             } catch (RemoteException e) { }
         }
diff --git a/Tethering/tests/unit/src/com/android/networkstack/tethering/TetheringServiceTest.java b/Tethering/tests/unit/src/com/android/networkstack/tethering/TetheringServiceTest.java
index cc80251..da9b68e 100644
--- a/Tethering/tests/unit/src/com/android/networkstack/tethering/TetheringServiceTest.java
+++ b/Tethering/tests/unit/src/com/android/networkstack/tethering/TetheringServiceTest.java
@@ -219,7 +219,7 @@
         mTetheringConnector.tether(TEST_IFACE_NAME, TEST_CALLER_PKG, TEST_ATTRIBUTION_TAG, result);
         verify(mTethering).isTetheringSupported();
         verify(mTethering).isTetheringAllowed();
-        verify(mTethering).tether(TEST_IFACE_NAME, IpServer.STATE_TETHERED, result);
+        verify(mTethering).legacyTether(TEST_IFACE_NAME, IpServer.STATE_TETHERED, result);
     }
 
     @Test
@@ -267,7 +267,7 @@
                 result);
         verify(mTethering).isTetheringSupported();
         verify(mTethering).isTetheringAllowed();
-        verify(mTethering).untether(eq(TEST_IFACE_NAME), eq(result));
+        verify(mTethering).legacyUntether(eq(TEST_IFACE_NAME), eq(result));
     }
 
     @Test
@@ -661,7 +661,7 @@
         mTetheringConnector.stopAllTethering(TEST_CALLER_PKG, TEST_ATTRIBUTION_TAG, result);
         verify(mTethering).isTetheringSupported();
         verify(mTethering).isTetheringAllowed();
-        verify(mTethering).untetherAll();
+        verify(mTethering).stopAllTethering();
         result.assertResult(TETHER_ERROR_NO_ERROR);
     }
 
diff --git a/Tethering/tests/unit/src/com/android/networkstack/tethering/TetheringTest.java b/Tethering/tests/unit/src/com/android/networkstack/tethering/TetheringTest.java
index 97758cf..e50a7fd 100644
--- a/Tethering/tests/unit/src/com/android/networkstack/tethering/TetheringTest.java
+++ b/Tethering/tests/unit/src/com/android/networkstack/tethering/TetheringTest.java
@@ -2098,7 +2098,7 @@
 
         verify(mNotificationUpdater, times(expectedInteractionsWithShowNotification))
                 .notifyTetheringDisabledByRestriction();
-        verify(mockTethering, times(expectedInteractionsWithShowNotification)).untetherAll();
+        verify(mockTethering, times(expectedInteractionsWithShowNotification)).stopAllTethering();
     }
 
     @Test
@@ -3426,7 +3426,7 @@
         mTethering.interfaceStatusChanged(TEST_BT_IFNAME, false);
         mTethering.interfaceStatusChanged(TEST_BT_IFNAME, true);
         final ResultListener tetherResult = new ResultListener(TETHER_ERROR_NO_ERROR);
-        mTethering.tether(TEST_BT_IFNAME, IpServer.STATE_TETHERED, tetherResult);
+        mTethering.legacyTether(TEST_BT_IFNAME, IpServer.STATE_TETHERED, tetherResult);
         mLooper.dispatchAll();
         tetherResult.assertHasResult();
 
@@ -3446,7 +3446,7 @@
         mTethering.stopTethering(TETHERING_BLUETOOTH);
         mLooper.dispatchAll();
         final ResultListener untetherResult = new ResultListener(TETHER_ERROR_NO_ERROR);
-        mTethering.untether(TEST_BT_IFNAME, untetherResult);
+        mTethering.legacyUntether(TEST_BT_IFNAME, untetherResult);
         mLooper.dispatchAll();
         untetherResult.assertHasResult();
         verifySetBluetoothTethering(false /* enable */, false /* bindToPanService */);
@@ -3476,7 +3476,7 @@
             mTethering.interfaceStatusChanged(TEST_BT_IFNAME, false);
             mTethering.interfaceStatusChanged(TEST_BT_IFNAME, true);
             final ResultListener tetherResult = new ResultListener(TETHER_ERROR_NO_ERROR);
-            mTethering.tether(TEST_BT_IFNAME, IpServer.STATE_TETHERED, tetherResult);
+            mTethering.legacyTether(TEST_BT_IFNAME, IpServer.STATE_TETHERED, tetherResult);
             mLooper.dispatchAll();
             tetherResult.assertHasResult();
         }