diff --git a/Tethering/Android.bp b/Tethering/Android.bp
index 1083adb..fa3926c 100644
--- a/Tethering/Android.bp
+++ b/Tethering/Android.bp
@@ -29,6 +29,7 @@
         "netd_aidl_interface-unstable-java",
         "netlink-client",
         "networkstack-aidl-interfaces-unstable-java",
+        "android.hardware.tetheroffload.config-V1.0-java",
         "android.hardware.tetheroffload.control-V1.0-java",
         "net-utils-framework-common",
     ],
@@ -51,26 +52,26 @@
 // Due to b/143733063, APK can't access a jni lib that is in APEX (but not in the APK).
 cc_library {
     name: "libtetherutilsjni",
+    sdk_version: "current",
     srcs: [
         "jni/android_net_util_TetheringUtils.cpp",
     ],
     shared_libs: [
-        "libcgrouprc",
-        "libnativehelper_compat_libc++",
-        "libvndksupport",
-    ],
-    static_libs: [
-        "android.hardware.tetheroffload.config@1.0",
         "liblog",
-        "libbase",
-        "libbinderthreadstate",
-        "libcutils",
-        "libhidlbase",
-        "libjsoncpp",
-        "libprocessgroup",
-        "libutils",
+        "libnativehelper_compat_libc++",
     ],
 
+    // We cannot use plain "libc++" here to link libc++ dynamically because it results in:
+    //   java.lang.UnsatisfiedLinkError: dlopen failed: library "libc++_shared.so" not found
+    // even if "libc++" is added into jni_libs below. Adding "libc++_shared" into jni_libs doesn't
+    // build because soong complains of:
+    //   module Tethering missing dependencies: libc++_shared
+    //
+    // So, link libc++ statically. This means that we also need to ensure that all the C++ libraries
+    // we depend on do not dynamically link libc++. This is currently the case, because liblog is
+    // C-only and libnativehelper_compat_libc also uses stl: "c++_static".
+    stl: "c++_static",
+
     cflags: [
         "-Wall",
         "-Werror",
@@ -90,9 +91,8 @@
     // Build system doesn't track transitive dependeicies for jni_libs, list all the dependencies
     // explicitly.
     jni_libs: [
-        "libcgrouprc",
+        "liblog",
         "libnativehelper_compat_libc++",
-        "libvndksupport",
         "libtetherutilsjni",
     ],
     resource_dirs: [
diff --git a/Tethering/common/TetheringLib/Android.bp b/Tethering/common/TetheringLib/Android.bp
index 24762ff..cb0de7a 100644
--- a/Tethering/common/TetheringLib/Android.bp
+++ b/Tethering/common/TetheringLib/Android.bp
@@ -60,16 +60,33 @@
     ],
 
     hostdex: true, // for hiddenapi check
-    visibility: [
-        "//frameworks/base/packages/Tethering:__subpackages__",
-        //TODO(b/147200698) remove below lines when the platform is built with stubs
-        "//frameworks/base",
-        "//frameworks/base/services",
-        "//frameworks/base/services/core",
-    ],
+    visibility: ["//frameworks/base/packages/Tethering:__subpackages__"],
     apex_available: ["com.android.tethering"],
 }
 
+droidstubs {
+    name: "framework-tethering-stubs-sources",
+    defaults: ["framework-module-stubs-defaults-module_libs_api"],
+    srcs: [
+        "src/android/net/TetheredClient.java",
+        "src/android/net/TetheringManager.java",
+        "src/android/net/TetheringConstants.java",
+    ],
+    libs: [
+        "tethering-aidl-interfaces-java",
+        "framework-all",
+    ],
+    sdk_version: "core_platform",
+}
+
+java_library {
+    name: "framework-tethering-stubs",
+    srcs: [":framework-tethering-stubs-sources"],
+    libs: ["framework-all"],
+    static_libs: ["tethering-aidl-interfaces-java"],
+    sdk_version: "core_platform",
+}
+
 filegroup {
     name: "framework-tethering-srcs",
     srcs: [
diff --git a/Tethering/common/TetheringLib/src/android/net/TetheredClient.java b/Tethering/common/TetheringLib/src/android/net/TetheredClient.java
index 6514688..779aa3b 100644
--- a/Tethering/common/TetheringLib/src/android/net/TetheredClient.java
+++ b/Tethering/common/TetheringLib/src/android/net/TetheredClient.java
@@ -16,6 +16,8 @@
 
 package android.net;
 
+import static android.annotation.SystemApi.Client.MODULE_LIBRARIES;
+
 import android.annotation.NonNull;
 import android.annotation.Nullable;
 import android.annotation.SystemApi;
@@ -25,7 +27,7 @@
 
 import java.util.ArrayList;
 import java.util.Collection;
-import java.util.HashSet;
+import java.util.LinkedHashSet;
 import java.util.List;
 import java.util.Objects;
 
@@ -34,6 +36,7 @@
  * @hide
  */
 @SystemApi
+@SystemApi(client = MODULE_LIBRARIES)
 @TestApi
 public final class TetheredClient implements Parcelable {
     @NonNull
@@ -83,7 +86,7 @@
      * @hide
      */
     public TetheredClient addAddresses(@NonNull TetheredClient other) {
-        final HashSet<AddressInfo> newAddresses = new HashSet<>(
+        final LinkedHashSet<AddressInfo> newAddresses = new LinkedHashSet<>(
                 mAddresses.size() + other.mAddresses.size());
         newAddresses.addAll(mAddresses);
         newAddresses.addAll(other.mAddresses);
diff --git a/Tethering/common/TetheringLib/src/android/net/TetheringConstants.java b/Tethering/common/TetheringLib/src/android/net/TetheringConstants.java
index 00cf98e..df87ac9 100644
--- a/Tethering/common/TetheringLib/src/android/net/TetheringConstants.java
+++ b/Tethering/common/TetheringLib/src/android/net/TetheringConstants.java
@@ -16,6 +16,9 @@
 
 package android.net;
 
+import static android.annotation.SystemApi.Client.MODULE_LIBRARIES;
+
+import android.annotation.SystemApi;
 import android.os.ResultReceiver;
 
 /**
@@ -28,39 +31,30 @@
  * symbols from framework-tethering even when they are in a non-hidden class.
  * @hide
  */
+@SystemApi(client = MODULE_LIBRARIES)
 public class TetheringConstants {
     /**
      * Extra used for communicating with the TetherService. Includes the type of tethering to
      * enable if any.
-     *
-     * {@hide}
      */
     public static final String EXTRA_ADD_TETHER_TYPE = "extraAddTetherType";
     /**
      * Extra used for communicating with the TetherService. Includes the type of tethering for
      * which to cancel provisioning.
-     *
-     * {@hide}
      */
     public static final String EXTRA_REM_TETHER_TYPE = "extraRemTetherType";
     /**
      * Extra used for communicating with the TetherService. True to schedule a recheck of tether
      * provisioning.
-     *
-     * {@hide}
      */
     public static final String EXTRA_SET_ALARM = "extraSetAlarm";
     /**
      * Tells the TetherService to run a provision check now.
-     *
-     * {@hide}
      */
     public static final String EXTRA_RUN_PROVISION = "extraRunProvision";
     /**
      * Extra used for communicating with the TetherService. Contains the {@link ResultReceiver}
      * which will receive provisioning results. Can be left empty.
-     *
-     * {@hide}
      */
     public static final String EXTRA_PROVISION_CALLBACK = "extraProvisionCallback";
 }
diff --git a/Tethering/common/TetheringLib/src/android/net/TetheringManager.java b/Tethering/common/TetheringLib/src/android/net/TetheringManager.java
index 53a358f..6a9f010 100644
--- a/Tethering/common/TetheringLib/src/android/net/TetheringManager.java
+++ b/Tethering/common/TetheringLib/src/android/net/TetheringManager.java
@@ -15,6 +15,8 @@
  */
 package android.net;
 
+import static android.annotation.SystemApi.Client.MODULE_LIBRARIES;
+
 import android.Manifest;
 import android.annotation.NonNull;
 import android.annotation.Nullable;
@@ -50,6 +52,7 @@
  * @hide
  */
 @SystemApi
+@SystemApi(client = MODULE_LIBRARIES)
 @TestApi
 public class TetheringManager {
     private static final String TAG = TetheringManager.class.getSimpleName();
@@ -177,6 +180,7 @@
      *                          service is not connected.
      * {@hide}
      */
+    @SystemApi(client = MODULE_LIBRARIES)
     public TetheringManager(@NonNull final Context context,
             @NonNull Supplier<IBinder> connectorSupplier) {
         mContext = context;
@@ -395,6 +399,7 @@
      * {@hide}
      */
     @Deprecated
+    @SystemApi(client = MODULE_LIBRARIES)
     public int tether(@NonNull final String iface) {
         final String callerPkg = mContext.getOpPackageName();
         Log.i(TAG, "tether caller:" + callerPkg);
@@ -418,6 +423,7 @@
      * {@hide}
      */
     @Deprecated
+    @SystemApi(client = MODULE_LIBRARIES)
     public int untether(@NonNull final String iface) {
         final String callerPkg = mContext.getOpPackageName();
         Log.i(TAG, "untether caller:" + callerPkg);
@@ -444,6 +450,7 @@
      * {@hide}
      */
     @Deprecated
+    @SystemApi(client = MODULE_LIBRARIES)
     public int setUsbTethering(final boolean enable) {
         final String callerPkg = mContext.getOpPackageName();
         Log.i(TAG, "setUsbTethering caller:" + callerPkg);
@@ -702,6 +709,7 @@
      * {@hide}
      */
     // TODO: improve the usage of ResultReceiver, b/145096122
+    @SystemApi(client = MODULE_LIBRARIES)
     public void requestLatestTetheringEntitlementResult(final int type,
             @NonNull final ResultReceiver receiver, final boolean showEntitlementUi) {
         final String callerPkg = mContext.getOpPackageName();
@@ -982,6 +990,7 @@
      *               interface
      * @hide
      */
+    @SystemApi(client = MODULE_LIBRARIES)
     public int getLastTetherError(@NonNull final String iface) {
         mCallback.waitForStarted();
         if (mTetherStatesParcel == null) return TETHER_ERROR_NO_ERROR;
@@ -1004,6 +1013,7 @@
      *        what interfaces are considered tetherable usb interfaces.
      * @hide
      */
+    @SystemApi(client = MODULE_LIBRARIES)
     public @NonNull String[] getTetherableUsbRegexs() {
         mCallback.waitForStarted();
         return mTetheringConfiguration.tetherableUsbRegexs;
@@ -1018,6 +1028,7 @@
      *        what interfaces are considered tetherable wifi interfaces.
      * @hide
      */
+    @SystemApi(client = MODULE_LIBRARIES)
     public @NonNull String[] getTetherableWifiRegexs() {
         mCallback.waitForStarted();
         return mTetheringConfiguration.tetherableWifiRegexs;
@@ -1032,6 +1043,7 @@
      *        what interfaces are considered tetherable bluetooth interfaces.
      * @hide
      */
+    @SystemApi(client = MODULE_LIBRARIES)
     public @NonNull String[] getTetherableBluetoothRegexs() {
         mCallback.waitForStarted();
         return mTetheringConfiguration.tetherableBluetoothRegexs;
@@ -1044,6 +1056,7 @@
      * @return an array of 0 or more Strings of tetherable interface names.
      * @hide
      */
+    @SystemApi(client = MODULE_LIBRARIES)
     public @NonNull String[] getTetherableIfaces() {
         mCallback.waitForStarted();
         if (mTetherStatesParcel == null) return new String[0];
@@ -1057,6 +1070,7 @@
      * @return an array of 0 or more String of currently tethered interface names.
      * @hide
      */
+    @SystemApi(client = MODULE_LIBRARIES)
     public @NonNull String[] getTetheredIfaces() {
         mCallback.waitForStarted();
         if (mTetherStatesParcel == null) return new String[0];
@@ -1076,6 +1090,7 @@
      *        which failed to tether.
      * @hide
      */
+    @SystemApi(client = MODULE_LIBRARIES)
     public @NonNull String[] getTetheringErroredIfaces() {
         mCallback.waitForStarted();
         if (mTetherStatesParcel == null) return new String[0];
@@ -1103,6 +1118,7 @@
      * @return a boolean - {@code true} indicating Tethering is supported.
      * @hide
      */
+    @SystemApi(client = MODULE_LIBRARIES)
     public boolean isTetheringSupported() {
         final String callerPkg = mContext.getOpPackageName();
 
diff --git a/Tethering/jni/android_net_util_TetheringUtils.cpp b/Tethering/jni/android_net_util_TetheringUtils.cpp
index 1cf8f98..5493440 100644
--- a/Tethering/jni/android_net_util_TetheringUtils.cpp
+++ b/Tethering/jni/android_net_util_TetheringUtils.cpp
@@ -16,123 +16,18 @@
 
 #include <errno.h>
 #include <error.h>
-#include <hidl/HidlSupport.h>
 #include <jni.h>
 #include <nativehelper/JNIHelp.h>
 #include <nativehelper/ScopedUtfChars.h>
-#include <linux/netfilter/nfnetlink.h>
-#include <linux/netlink.h>
 #include <net/if.h>
 #include <netinet/icmp6.h>
 #include <sys/socket.h>
-#include <android-base/unique_fd.h>
-#include <android/hardware/tetheroffload/config/1.0/IOffloadConfig.h>
 
 #define LOG_TAG "TetheringUtils"
-#include <utils/Log.h>
+#include <android/log.h>
 
 namespace android {
 
-using hardware::hidl_handle;
-using hardware::hidl_string;
-using hardware::tetheroffload::config::V1_0::IOffloadConfig;
-
-namespace {
-
-inline const sockaddr * asSockaddr(const sockaddr_nl *nladdr) {
-    return reinterpret_cast<const sockaddr *>(nladdr);
-}
-
-int conntrackSocket(unsigned groups) {
-    base::unique_fd s(socket(AF_NETLINK, SOCK_DGRAM, NETLINK_NETFILTER));
-    if (s.get() < 0) return -errno;
-
-    const struct sockaddr_nl bind_addr = {
-        .nl_family = AF_NETLINK,
-        .nl_pad = 0,
-        .nl_pid = 0,
-        .nl_groups = groups,
-    };
-    if (bind(s.get(), asSockaddr(&bind_addr), sizeof(bind_addr)) != 0) {
-        return -errno;
-    }
-
-    const struct sockaddr_nl kernel_addr = {
-        .nl_family = AF_NETLINK,
-        .nl_pad = 0,
-        .nl_pid = 0,
-        .nl_groups = groups,
-    };
-    if (connect(s.get(), asSockaddr(&kernel_addr), sizeof(kernel_addr)) != 0) {
-        return -errno;
-    }
-
-    return s.release();
-}
-
-// Return a hidl_handle that owns the file descriptor owned by fd, and will
-// auto-close it (otherwise there would be double-close problems).
-//
-// Rely upon the compiler to eliminate the constexprs used for clarity.
-hidl_handle handleFromFileDescriptor(base::unique_fd fd) {
-    hidl_handle h;
-
-    static constexpr int kNumFds = 1;
-    static constexpr int kNumInts = 0;
-    native_handle_t *nh = native_handle_create(kNumFds, kNumInts);
-    nh->data[0] = fd.release();
-
-    static constexpr bool kTakeOwnership = true;
-    h.setTo(nh, kTakeOwnership);
-
-    return h;
-}
-
-}  // namespace
-
-static jboolean android_net_util_configOffload(
-        JNIEnv* /* env */) {
-    sp<IOffloadConfig> configInterface = IOffloadConfig::getService();
-    if (configInterface.get() == nullptr) {
-        ALOGD("Could not find IOffloadConfig service.");
-        return false;
-    }
-
-    // Per the IConfigOffload definition:
-    //
-    // fd1   A file descriptor bound to the following netlink groups
-    //       (NF_NETLINK_CONNTRACK_NEW | NF_NETLINK_CONNTRACK_DESTROY).
-    //
-    // fd2   A file descriptor bound to the following netlink groups
-    //       (NF_NETLINK_CONNTRACK_UPDATE | NF_NETLINK_CONNTRACK_DESTROY).
-    base::unique_fd
-            fd1(conntrackSocket(NF_NETLINK_CONNTRACK_NEW | NF_NETLINK_CONNTRACK_DESTROY)),
-            fd2(conntrackSocket(NF_NETLINK_CONNTRACK_UPDATE | NF_NETLINK_CONNTRACK_DESTROY));
-    if (fd1.get() < 0 || fd2.get() < 0) {
-        ALOGE("Unable to create conntrack handles: %d/%s", errno, strerror(errno));
-        return false;
-    }
-
-    hidl_handle h1(handleFromFileDescriptor(std::move(fd1))),
-                h2(handleFromFileDescriptor(std::move(fd2)));
-
-    bool rval(false);
-    hidl_string msg;
-    const auto status = configInterface->setHandles(h1, h2,
-            [&rval, &msg](bool success, const hidl_string& errMsg) {
-                rval = success;
-                msg = errMsg;
-            });
-    if (!status.isOk() || !rval) {
-        ALOGE("IOffloadConfig::setHandles() error: '%s' / '%s'",
-              status.description().c_str(), msg.c_str());
-        // If status is somehow not ok, make sure rval captures this too.
-        rval = false;
-    }
-
-    return rval;
-}
-
 static void android_net_util_setupRaSocket(JNIEnv *env, jobject clazz, jobject javaFd,
         jint ifIndex)
 {
@@ -229,7 +124,6 @@
  */
 static const JNINativeMethod gMethods[] = {
     /* name, signature, funcPtr */
-    { "configOffload", "()Z", (void*) android_net_util_configOffload },
     { "setupRaSocket", "(Ljava/io/FileDescriptor;I)V", (void*) android_net_util_setupRaSocket },
 };
 
@@ -242,7 +136,7 @@
 extern "C" jint JNI_OnLoad(JavaVM* vm, void*) {
     JNIEnv *env;
     if (vm->GetEnv(reinterpret_cast<void**>(&env), JNI_VERSION_1_6) != JNI_OK) {
-        ALOGE("ERROR: GetEnv failed");
+        __android_log_print(ANDROID_LOG_ERROR, LOG_TAG, "ERROR: GetEnv failed");
         return JNI_ERR;
     }
 
diff --git a/Tethering/src/android/net/util/TetheringUtils.java b/Tethering/src/android/net/util/TetheringUtils.java
index fa543bd..5a6d5c1 100644
--- a/Tethering/src/android/net/util/TetheringUtils.java
+++ b/Tethering/src/android/net/util/TetheringUtils.java
@@ -24,14 +24,6 @@
  * {@hide}
  */
 public class TetheringUtils {
-
-    /**
-     * Offload management process need to know conntrack rules to support NAT, but it may not have
-     * permission to create netlink netfilter sockets. Create two netlink netfilter sockets and
-     * share them with offload management process.
-     */
-    public static native boolean configOffload();
-
     /**
      * Configures a socket for receiving ICMPv6 router solicitations and sending advertisements.
      * @param fd the socket's {@link FileDescriptor}.
diff --git a/Tethering/src/com/android/server/connectivity/tethering/OffloadHardwareInterface.java b/Tethering/src/com/android/server/connectivity/tethering/OffloadHardwareInterface.java
index 90b9d3f..b545717 100644
--- a/Tethering/src/com/android/server/connectivity/tethering/OffloadHardwareInterface.java
+++ b/Tethering/src/com/android/server/connectivity/tethering/OffloadHardwareInterface.java
@@ -18,19 +18,28 @@
 
 import static android.net.util.TetheringUtils.uint16;
 
+import android.hardware.tetheroffload.config.V1_0.IOffloadConfig;
 import android.hardware.tetheroffload.control.V1_0.IOffloadControl;
 import android.hardware.tetheroffload.control.V1_0.ITetheringOffloadCallback;
 import android.hardware.tetheroffload.control.V1_0.NatTimeoutUpdate;
 import android.hardware.tetheroffload.control.V1_0.NetworkProtocol;
 import android.hardware.tetheroffload.control.V1_0.OffloadCallbackEvent;
+import android.net.netlink.NetlinkSocket;
 import android.net.util.SharedLog;
-import android.net.util.TetheringUtils;
+import android.net.util.SocketUtils;
 import android.os.Handler;
+import android.os.NativeHandle;
 import android.os.RemoteException;
+import android.system.ErrnoException;
+import android.system.Os;
 import android.system.OsConstants;
 
 import com.android.internal.annotations.VisibleForTesting;
 
+import java.io.FileDescriptor;
+import java.io.IOException;
+import java.net.SocketAddress;
+import java.net.SocketException;
 import java.util.ArrayList;
 
 
@@ -49,6 +58,10 @@
     private static final String NO_INTERFACE_NAME = "";
     private static final String NO_IPV4_ADDRESS = "";
     private static final String NO_IPV4_GATEWAY = "";
+    // Reference kernel/uapi/linux/netfilter/nfnetlink_compat.h
+    private static final int NF_NETLINK_CONNTRACK_NEW = 1;
+    private static final int NF_NETLINK_CONNTRACK_UPDATE = 2;
+    private static final int NF_NETLINK_CONNTRACK_DESTROY = 4;
 
     private final Handler mHandler;
     private final SharedLog mLog;
@@ -121,9 +134,103 @@
         return DEFAULT_TETHER_OFFLOAD_DISABLED;
     }
 
-    /** Configure offload management process. */
+    /**
+     * Offload management process need to know conntrack rules to support NAT, but it may not have
+     * permission to create netlink netfilter sockets. Create two netlink netfilter sockets and
+     * share them with offload management process.
+     */
     public boolean initOffloadConfig() {
-        return TetheringUtils.configOffload();
+        IOffloadConfig offloadConfig;
+        try {
+            offloadConfig = IOffloadConfig.getService();
+        } catch (RemoteException e) {
+            mLog.e("getIOffloadConfig error " + e);
+            return false;
+        }
+        if (offloadConfig == null) {
+            mLog.e("Could not find IOffloadConfig service");
+            return false;
+        }
+        // Per the IConfigOffload definition:
+        //
+        // h1    provides a file descriptor bound to the following netlink groups
+        //       (NF_NETLINK_CONNTRACK_NEW | NF_NETLINK_CONNTRACK_DESTROY).
+        //
+        // h2    provides a file descriptor bound to the following netlink groups
+        //       (NF_NETLINK_CONNTRACK_UPDATE | NF_NETLINK_CONNTRACK_DESTROY).
+        final NativeHandle h1 = createConntrackSocket(
+                NF_NETLINK_CONNTRACK_NEW | NF_NETLINK_CONNTRACK_DESTROY);
+        if (h1 == null) return false;
+
+        final NativeHandle h2 = createConntrackSocket(
+                NF_NETLINK_CONNTRACK_UPDATE | NF_NETLINK_CONNTRACK_DESTROY);
+        if (h2 == null) {
+            closeFdInNativeHandle(h1);
+            return false;
+        }
+
+        final CbResults results = new CbResults();
+        try {
+            offloadConfig.setHandles(h1, h2,
+                    (boolean success, String errMsg) -> {
+                        results.mSuccess = success;
+                        results.mErrMsg = errMsg;
+                    });
+        } catch (RemoteException e) {
+            record("initOffloadConfig, setHandles fail", e);
+            return false;
+        }
+        // Explicitly close FDs.
+        closeFdInNativeHandle(h1);
+        closeFdInNativeHandle(h2);
+
+        record("initOffloadConfig, setHandles results:", results);
+        return results.mSuccess;
+    }
+
+    private void closeFdInNativeHandle(final NativeHandle h) {
+        try {
+            h.close();
+        } catch (IOException | IllegalStateException e) {
+            // IllegalStateException means fd is already closed, do nothing here.
+            // Also nothing we can do if IOException.
+        }
+    }
+
+    private NativeHandle createConntrackSocket(final int groups) {
+        FileDescriptor fd;
+        try {
+            fd = NetlinkSocket.forProto(OsConstants.NETLINK_NETFILTER);
+        } catch (ErrnoException e) {
+            mLog.e("Unable to create conntrack socket " + e);
+            return null;
+        }
+
+        final SocketAddress sockAddr = SocketUtils.makeNetlinkSocketAddress(0, groups);
+        try {
+            Os.bind(fd, sockAddr);
+        } catch (ErrnoException | SocketException e) {
+            mLog.e("Unable to bind conntrack socket for groups " + groups + " error: " + e);
+            try {
+                SocketUtils.closeSocket(fd);
+            } catch (IOException ie) {
+                // Nothing we can do here
+            }
+            return null;
+        }
+        try {
+            Os.connect(fd, sockAddr);
+        } catch (ErrnoException | SocketException e) {
+            mLog.e("connect to kernel fail for groups " + groups + " error: " + e);
+            try {
+                SocketUtils.closeSocket(fd);
+            } catch (IOException ie) {
+                // Nothing we can do here
+            }
+            return null;
+        }
+
+        return new NativeHandle(fd, true);
     }
 
     /** Initialize the tethering offload HAL. */
diff --git a/Tethering/src/com/android/server/connectivity/tethering/Tethering.java b/Tethering/src/com/android/server/connectivity/tethering/Tethering.java
index 07abe1a..64c16e4 100644
--- a/Tethering/src/com/android/server/connectivity/tethering/Tethering.java
+++ b/Tethering/src/com/android/server/connectivity/tethering/Tethering.java
@@ -272,13 +272,6 @@
 
         mStateReceiver = new StateReceiver();
 
-        mNetdCallback = new NetdCallback();
-        try {
-            mNetd.registerUnsolicitedEventListener(mNetdCallback);
-        } catch (RemoteException e) {
-            mLog.e("Unable to register netd UnsolicitedEventListener");
-        }
-
         final UserManager userManager = (UserManager) mContext.getSystemService(
                 Context.USER_SERVICE);
         mTetheringRestriction = new UserRestrictionActionListener(userManager, this);
@@ -287,6 +280,14 @@
 
         // Load tethering configuration.
         updateConfiguration();
+        // NetdCallback should be registered after updateConfiguration() to ensure
+        // TetheringConfiguration is created.
+        mNetdCallback = new NetdCallback();
+        try {
+            mNetd.registerUnsolicitedEventListener(mNetdCallback);
+        } catch (RemoteException e) {
+            mLog.e("Unable to register netd UnsolicitedEventListener");
+        }
 
         startStateMachineUpdaters(mHandler);
         startTrackDefaultNetwork();
@@ -1943,7 +1944,8 @@
             parcel.tetheringSupported = mDeps.isTetheringSupported();
             parcel.upstreamNetwork = mTetherUpstream;
             parcel.config = mConfig.toStableParcelable();
-            parcel.states = mTetherStatesParcel;
+            parcel.states =
+                    mTetherStatesParcel != null ? mTetherStatesParcel : emptyTetherStatesParcel();
             try {
                 callback.onCallbackStarted(parcel);
             } catch (RemoteException e) {
@@ -1952,6 +1954,17 @@
         });
     }
 
+    private TetherStatesParcel emptyTetherStatesParcel() {
+        final TetherStatesParcel parcel = new TetherStatesParcel();
+        parcel.availableList = new String[0];
+        parcel.tetheredList = new String[0];
+        parcel.localOnlyList = new String[0];
+        parcel.erroredIfaceList = new String[0];
+        parcel.lastErrorList = new int[0];
+
+        return parcel;
+    }
+
     /** Unregister tethering event callback */
     void unregisterTetheringEventCallback(ITetheringEventCallback callback) {
         mHandler.post(() -> {
diff --git a/Tethering/tests/unit/Android.bp b/Tethering/tests/unit/Android.bp
index 13174c5..c6905ec 100644
--- a/Tethering/tests/unit/Android.bp
+++ b/Tethering/tests/unit/Android.bp
@@ -34,7 +34,15 @@
         "TetheringApiCurrentLib",
         "testables",
     ],
+    // TODO(b/147200698) change sdk_version to module-current and
+    // remove framework-minus-apex, ext, and framework-res
+    sdk_version: "core_platform",
     libs: [
+        "framework-minus-apex",
+        "ext",
+        "framework-res",
+        "framework-wifi-stubs",
+        "framework-telephony-stubs",
         "android.test.runner",
         "android.test.base",
         "android.test.mock",
diff --git a/Tethering/tests/unit/src/android/net/TetheredClientTest.kt b/Tethering/tests/unit/src/android/net/TetheredClientTest.kt
index 83c19ec..d85389a 100644
--- a/Tethering/tests/unit/src/android/net/TetheredClientTest.kt
+++ b/Tethering/tests/unit/src/android/net/TetheredClientTest.kt
@@ -75,7 +75,7 @@
         assertNotEquals(makeTestClient(), TetheredClient(
                 TEST_MACADDR,
                 listOf(TEST_ADDRINFO1, TEST_ADDRINFO2),
-                TETHERING_BLUETOOTH))
+                TETHERING_USB))
     }
 
     @Test
diff --git a/Tethering/tests/unit/src/com/android/server/connectivity/tethering/TetheringTest.java b/Tethering/tests/unit/src/com/android/server/connectivity/tethering/TetheringTest.java
index 4710287..6d49e20 100644
--- a/Tethering/tests/unit/src/com/android/server/connectivity/tethering/TetheringTest.java
+++ b/Tethering/tests/unit/src/com/android/server/connectivity/tethering/TetheringTest.java
@@ -127,6 +127,7 @@
 import com.android.internal.util.test.BroadcastInterceptingContext;
 import com.android.internal.util.test.FakeSettingsProvider;
 import com.android.networkstack.tethering.R;
+import com.android.testutils.MiscAssertsKt;
 
 import org.junit.After;
 import org.junit.Before;
@@ -1220,6 +1221,16 @@
         }
     }
 
+    private void assertTetherStatesNotNullButEmpty(final TetherStatesParcel parcel) {
+        assertFalse(parcel == null);
+        assertEquals(0, parcel.availableList.length);
+        assertEquals(0, parcel.tetheredList.length);
+        assertEquals(0, parcel.localOnlyList.length);
+        assertEquals(0, parcel.erroredIfaceList.length);
+        assertEquals(0, parcel.lastErrorList.length);
+        MiscAssertsKt.assertFieldCountEquals(5, TetherStatesParcel.class);
+    }
+
     @Test
     public void testRegisterTetheringEventCallback() throws Exception {
         TestTetheringEventCallback callback = new TestTetheringEventCallback();
@@ -1232,7 +1243,7 @@
         callback.expectConfigurationChanged(
                 mTethering.getTetheringConfiguration().toStableParcelable());
         TetherStatesParcel tetherState = callback.pollTetherStatesChanged();
-        assertEquals(tetherState, null);
+        assertTetherStatesNotNullButEmpty(tetherState);
         // 2. Enable wifi tethering.
         UpstreamNetworkState upstreamState = buildMobileDualStackUpstreamState();
         when(mUpstreamNetworkMonitor.getCurrentPreferredUpstream()).thenReturn(upstreamState);