diff --git a/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/interface.go b/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/interface.go
index 12378153562..9d6e3b64738 100644
--- a/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/interface.go
+++ b/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/interface.go
@@ -21,9 +21,22 @@ import (
 	"time"
 )
 
-// QueueSetFactory is used to create QueueSet objects.
+// QueueSetFactory is used to create QueueSet objects.  Creation, like
+// config update, is done in two phases: the first phase consumes the
+// QueuingConfig and the second consumes the DispatchingConfig.  They
+// are separated so that errors from the first phase can be found
+// before committing to a concurrency allotment for the second.
 type QueueSetFactory interface {
-	NewQueueSet(config QueueSetConfig) (QueueSet, error)
+	// BeginConstruction does the first phase of creating a QueueSet
+	BeginConstruction(QueuingConfig) (QueueSetCompleter, error)
+}
+
+// QueueSetCompleter finishes the two-step process of creating or
+// reconfiguring a QueueSet
+type QueueSetCompleter interface {
+	// Complete returns a QueueSet configured by the given
+	// dispatching configuration.
+	Complete(DispatchingConfig) QueueSet
 }
 
 // QueueSet is the abstraction for the queuing and dispatching
@@ -34,19 +47,27 @@ type QueueSetFactory interface {
 // .  Some day we may have connections between priority levels, but
 // today is not that day.
 type QueueSet interface {
-	// SetConfiguration updates the configuration
-	SetConfiguration(QueueSetConfig) error
+	// BeginConfigChange starts the two-step process of updating
+	// the configuration.  No change is made until Complete is
+	// called.  If `C := X.BeginConstruction(q)` then
+	// `C.Complete(d)` returns the same value `X`.  If the
+	// QueuingConfig's DesiredNumQueues field is zero then the other
+	// queuing-specific config parameters are not changed, so that the
+	// queues continue draining as before.
+	BeginConfigChange(QueuingConfig) (QueueSetCompleter, error)
 
-	// Quiesce controls whether the QueueSet is operating normally or is quiescing.
-	// A quiescing QueueSet drains as normal but does not admit any
-	// new requests. Passing a non-nil handler means the system should
-	// be quiescing, a nil handler means the system should operate
-	// normally. A call to Wait while the system is quiescing
-	// will be rebuffed by returning tryAnother=true. If all the
-	// queues have no requests waiting nor executing while the system
-	// is quiescing then the handler will eventually be called with no
-	// locks held (even if the system becomes non-quiescing between the
-	// triggering state and the required call).
+	// Quiesce controls whether the QueueSet is operating normally or
+	// is quiescing.  A quiescing QueueSet drains as normal but does
+	// not admit any new requests. Passing a non-nil handler means the
+	// system should be quiescing, a nil handler means the system
+	// should operate normally. A call to Wait while the system is
+	// quiescing will be rebuffed by returning tryAnother=true. If all
+	// the queues have no requests waiting nor executing while the
+	// system is quiescing then the handler will eventually be called
+	// with no locks held (even if the system becomes non-quiescing
+	// between the triggering state and the required call).  In Go
+	// Memory Model terms, the triggering state happens before the
+	// call to the EmptyHandler.
 	Quiesce(EmptyHandler)
 
 	// Wait uses the given hashValue as the source of entropy as it
@@ -56,34 +77,47 @@ type QueueSet interface {
 	// tryAnother==true at return then the QueueSet has become
 	// undesirable and the client should try to find a different
 	// QueueSet to use; execute and afterExecution are irrelevant in
-	// this case.  Otherwise, if execute then the client should start
-	// executing the request and, once the request finishes execution
-	// or is canceled, call afterExecution().  Otherwise the client
-	// should not execute the request and afterExecution is
-	// irrelevant.
+	// this case.  In the terms of the Go Memory Model, there was a
+	// call to Quiesce with a non-nil handler that happened before
+	// this return from Wait.  Otherwise, if execute then the client
+	// should start executing the request and, once the request
+	// finishes execution or is canceled, call afterExecution().
+	// Otherwise the client should not execute the request and
+	// afterExecution is irrelevant.  Canceling the context while the
+	// request is waiting in its queue will cut short that wait and
+	// cause a return with tryAnother and execute both false; later
+	// cancellations are the caller's problem.
 	Wait(ctx context.Context, hashValue uint64, descr1, descr2 interface{}) (tryAnother, execute bool, afterExecution func())
 }
 
-// QueueSetConfig defines the configuration of a QueueSet.
-type QueueSetConfig struct {
+// QueuingConfig defines the configuration of the queuing aspect of a QueueSet.
+type QueuingConfig struct {
 	// Name is used to identify a queue set, allowing for descriptive information about its intended use
 	Name string
-	// ConcurrencyLimit is the maximum number of requests of this QueueSet that may be executing at a time
-	ConcurrencyLimit int
+
 	// DesiredNumQueues is the number of queues that the API says
 	// should exist now.  This may be zero, in which case
 	// QueueLengthLimit, HandSize, and RequestWaitLimit are ignored.
 	DesiredNumQueues int
+
 	// QueueLengthLimit is the maximum number of requests that may be waiting in a given queue at a time
 	QueueLengthLimit int
+
 	// HandSize is a parameter of shuffle sharding.  Upon arrival of a request, a queue is chosen by randomly
 	// dealing a "hand" of this many queues and then picking one of minimum length.
 	HandSize int
+
 	// RequestWaitLimit is the maximum amount of time that a request may wait in a queue.
 	// If, by the end of that time, the request has not been dispatched then it is rejected.
 	RequestWaitLimit time.Duration
 }
 
+// DispatchingConfig defines the configuration of the dispatching aspect of a QueueSet.
+type DispatchingConfig struct {
+	// ConcurrencyLimit is the maximum number of requests of this QueueSet that may be executing at a time
+	ConcurrencyLimit int
+}
+
 // EmptyHandler is used to notify the callee when all the queues
 // of a QueueSet have been drained.
 type EmptyHandler interface {
diff --git a/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/promise/interface.go b/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/promise/interface.go
index 258469043b4..1977f7522ac 100644
--- a/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/promise/interface.go
+++ b/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/promise/interface.go
@@ -16,27 +16,114 @@ limitations under the License.
 
 package promise
 
-// Mutable is a variable that is initially not set and can be set one
-// or more times (unlike a traditional "promise", which can be written
-// only once).
-type Mutable interface {
+// This file defines interfaces for promises and futures and related
+// things.  These are about coordination among multiple goroutines and
+// so are safe for concurrent calls --- although moderated in some
+// cases by a requirement that the caller hold a certain lock.
 
+// Readable represents a variable that is initially not set and later
+// becomes set.  Some instances may be set to multiple values in
+// series.  A Readable for a variable that can only get one value is
+// commonly known as a "future".
+type Readable interface {
+	// Get reads the current value of this variable.  If this variable
+	// is not set yet then this call blocks until this variable gets a
+	// value.
+	Get() interface{}
+
+	// IsSet returns immediately with an indication of whether this
+	// variable has been set.
+	IsSet() bool
+}
+
+// LockingReadable is a Readable whose implementation is protected by
+// a lock
+type LockingReadable interface {
+	Readable
+
+	// GetLocked is like Get but the caller must already hold the
+	// lock.  GetLocked may release, and later re-acquire, the lock
+	// any number of times.  Get may acquire, and later release, the
+	// lock any number of times.
+	GetLocked() interface{}
+
+	// IsSetLocked is like IsSet but the caller must already hold the
+	// lock.  IsSetLocked may release, and later re-acquire, the lock
+	// any number of times.  IsSet may acquire, and later release, the
+	// lock any number of times.
+	IsSetLocked() bool
+}
+
+// WriteOnceOnly represents a variable that is initially not set and
+// can be set once.
+type WriteOnceOnly interface {
+	// Set normally writes a value into this variable, unblocks every
+	// goroutine waiting for this variable to have a value, and
+	// returns true.  In the unhappy case that this variable is
+	// already set, this method returns false without modifying the
+	// variable's value.
+	Set(interface{}) bool
+}
+
+// WriteOnce represents a variable that is initially not set and can
+// be set once and is readable.  This is the common meaning for
+// "promise".
+type WriteOnce interface {
+	Readable
+	WriteOnceOnly
+}
+
+// LockingWriteOnceOnly is a WriteOnceOnly whose implementation is
+// protected by a lock.
+type LockingWriteOnceOnly interface {
+	WriteOnceOnly
+
+	// SetLocked is like Set but the caller must already hold the
+	// lock.  SetLocked may release, and later re-acquire, the lock
+	// any number of times.  Set may acquire, and later release, the
+	// lock any number of times
+	SetLocked(interface{}) bool
+}
+
+// LockingWriteOnce is a WriteOnce whose implementation is protected
+// by a lock.
+type LockingWriteOnce interface {
+	LockingReadable
+	LockingWriteOnceOnly
+}
+
+// WriteMultipleOnly represents a variable that is initially not set
+// and can be set one or more times (unlike a traditional "promise",
+// which can be written only once).
+type WriteMultipleOnly interface {
 	// Set writes a value into this variable and unblocks every
 	// goroutine waiting for this variable to have a value
 	Set(interface{})
-
-	// Get reads the value of this variable.  If this variable is
-	// not set yet then this call blocks until this variable gets a value.
-	Get() interface{}
 }
 
-// LockingMutable is a Mutable whose implementation is protected by a lock
-type LockingMutable interface {
-	Mutable
+// WriteMultiple represents a variable that is initially not set and
+// can be set one or more times (unlike a traditional "promise", which
+// can be written only once) and is readable.
+type WriteMultiple interface {
+	Readable
+	WriteMultipleOnly
+}
 
-	// SetLocked is like Set but the caller must already hold the lock
+// LockingWriteMultipleOnly is a WriteMultipleOnly whose
+// implementation is protected by a lock.
+type LockingWriteMultipleOnly interface {
+	WriteMultipleOnly
+
+	// SetLocked is like Set but the caller must already hold the
+	// lock.  SetLocked may release, and later re-acquire, the lock
+	// any number of times.  Set may acquire, and later release, the
+	// lock any number of times
 	SetLocked(interface{})
-
-	// GetLocked is like Get but the caller must already hold the lock
-	GetLocked() interface{}
+}
+
+// LockingWriteMultiple is a WriteMultiple whose implementation is
+// protected by a lock.
+type LockingWriteMultiple interface {
+	LockingReadable
+	LockingWriteMultipleOnly
 }
diff --git a/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/promise/lockingpromise/lockingpromise.go b/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/promise/lockingpromise/lockingpromise.go
index 5013abf3fd4..db5598f8989 100644
--- a/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/promise/lockingpromise/lockingpromise.go
+++ b/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/promise/lockingpromise/lockingpromise.go
@@ -23,57 +23,102 @@ import (
 	"k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/promise"
 )
 
-// lockingPromise implements LockingMutable based on a condition
-// variable.  This implementation tracks active goroutines: the given
-// counter is decremented for a goroutine waiting for this varible to
-// be set and incremented when such a goroutine is unblocked.
-type lockingPromise struct {
+// promisoid is the data and behavior common to all the promise-like
+// abstractions implemented here.  This implementation is based on a
+// condition variable.  This implementation tracks active goroutines:
+// the given counter is decremented for a goroutine waiting for this
+// varible to be set and incremented when such a goroutine is
+// unblocked.
+type promisoid struct {
 	lock          sync.Locker
 	cond          sync.Cond
 	activeCounter counter.GoRoutineCounter // counter of active goroutines
-	waitingCount  int                      // number of goroutines idle due to this mutable being unset
+	waitingCount  int                      // number of goroutines idle due to this being unset
 	isSet         bool
 	value         interface{}
 }
 
-var _ promise.LockingMutable = &lockingPromise{}
+func (pr *promisoid) Get() interface{} {
+	pr.lock.Lock()
+	defer pr.lock.Unlock()
+	return pr.GetLocked()
+}
 
-// NewLockingPromise makes a new promise.LockingMutable
-func NewLockingPromise(lock sync.Locker, activeCounter counter.GoRoutineCounter) promise.LockingMutable {
-	return &lockingPromise{
+func (pr *promisoid) GetLocked() interface{} {
+	if !pr.isSet {
+		pr.waitingCount++
+		pr.activeCounter.Add(-1)
+		pr.cond.Wait()
+	}
+	return pr.value
+}
+
+func (pr *promisoid) IsSet() bool {
+	pr.lock.Lock()
+	defer pr.lock.Unlock()
+	return pr.IsSetLocked()
+}
+
+func (pr *promisoid) IsSetLocked() bool {
+	return pr.isSet
+}
+
+func (pr *promisoid) SetLocked(value interface{}) {
+	pr.isSet = true
+	pr.value = value
+	if pr.waitingCount > 0 {
+		pr.activeCounter.Add(pr.waitingCount)
+		pr.waitingCount = 0
+		pr.cond.Broadcast()
+	}
+}
+
+type writeOnce struct {
+	promisoid
+}
+
+var _ promise.LockingWriteOnce = &writeOnce{}
+
+// NewWriteOnce makes a new promise.LockingWriteOnce
+func NewWriteOnce(lock sync.Locker, activeCounter counter.GoRoutineCounter) promise.LockingWriteOnce {
+	return &writeOnce{promisoid{
 		lock:          lock,
 		cond:          *sync.NewCond(lock),
 		activeCounter: activeCounter,
+	}}
+}
+
+func (wr *writeOnce) Set(value interface{}) bool {
+	wr.lock.Lock()
+	defer wr.lock.Unlock()
+	return wr.SetLocked(value)
+}
+
+func (wr *writeOnce) SetLocked(value interface{}) bool {
+	if wr.isSet {
+		return false
 	}
+	wr.promisoid.SetLocked(value)
+	return true
 }
 
-func (lp *lockingPromise) Set(value interface{}) {
-	lp.lock.Lock()
-	defer lp.lock.Unlock()
-	lp.SetLocked(value)
+type writeMultiple struct {
+	promisoid
 }
 
-func (lp *lockingPromise) Get() interface{} {
-	lp.lock.Lock()
-	defer lp.lock.Unlock()
-	return lp.GetLocked()
+var _ promise.LockingWriteMultiple = &writeMultiple{}
+
+// NewWriteMultiple makes a new promise.LockingWriteMultiple
+func NewWriteMultiple(lock sync.Locker, activeCounter counter.GoRoutineCounter) promise.LockingWriteMultiple {
+	return &writeMultiple{promisoid{
+		lock:          lock,
+		cond:          *sync.NewCond(lock),
+		activeCounter: activeCounter,
+	}}
 }
 
-func (lp *lockingPromise) SetLocked(value interface{}) {
-	lp.isSet = true
-	lp.value = value
-	if lp.waitingCount > 0 {
-		lp.activeCounter.Add(lp.waitingCount)
-		lp.waitingCount = 0
-		lp.cond.Broadcast()
-	}
-}
-
-func (lp *lockingPromise) GetLocked() interface{} {
-	if !lp.isSet {
-		lp.waitingCount++
-		lp.activeCounter.Add(-1)
-		lp.cond.Wait()
-	}
-	return lp.value
+func (wr *writeMultiple) Set(value interface{}) {
+	wr.lock.Lock()
+	defer wr.lock.Unlock()
+	wr.SetLocked(value)
 }
diff --git a/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/promise/lockingpromise/lockingpromise_test.go b/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/promise/lockingpromise/lockingpromise_test.go
index 766f8ffed9c..abaedda1230 100644
--- a/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/promise/lockingpromise/lockingpromise_test.go
+++ b/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/promise/lockingpromise/lockingpromise_test.go
@@ -25,16 +25,16 @@ import (
 	"k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/testing/clock"
 )
 
-func TestLockingPromise(t *testing.T) {
+func TestLockingWriteMultiple(t *testing.T) {
 	now := time.Now()
 	clock, counter := clock.NewFakeEventClock(now, 0, nil)
 	var lock sync.Mutex
-	lp := NewLockingPromise(&lock, counter)
+	wr := NewWriteMultiple(&lock, counter)
 	var gots int32
 	var got atomic.Value
 	counter.Add(1)
 	go func() {
-		got.Store(lp.Get())
+		got.Store(wr.Get())
 		atomic.AddInt32(&gots, 1)
 		counter.Add(-1)
 	}()
@@ -43,8 +43,11 @@ func TestLockingPromise(t *testing.T) {
 	if atomic.LoadInt32(&gots) != 0 {
 		t.Error("Get returned before Set")
 	}
-	var aval = &now
-	lp.Set(aval)
+	if wr.IsSet() {
+		t.Error("IsSet before Set")
+	}
+	aval := &now
+	wr.Set(aval)
 	clock.Run(nil)
 	time.Sleep(time.Second)
 	if atomic.LoadInt32(&gots) != 1 {
@@ -53,9 +56,12 @@ func TestLockingPromise(t *testing.T) {
 	if got.Load() != aval {
 		t.Error("Get did not return what was Set")
 	}
+	if !wr.IsSet() {
+		t.Error("IsSet()==false after Set")
+	}
 	counter.Add(1)
 	go func() {
-		got.Store(lp.Get())
+		got.Store(wr.Get())
 		atomic.AddInt32(&gots, 1)
 		counter.Add(-1)
 	}()
@@ -67,4 +73,80 @@ func TestLockingPromise(t *testing.T) {
 	if got.Load() != aval {
 		t.Error("Second Get did not return what was Set")
 	}
+	if !wr.IsSet() {
+		t.Error("IsSet()==false after second Set")
+	}
+	later := time.Now()
+	bval := &later
+	wr.Set(bval)
+	if !wr.IsSet() {
+		t.Error("IsSet() returned false after second set")
+	} else if wr.Get() != bval {
+		t.Error("Get() after second Set returned wrong value")
+	}
+}
+
+func TestLockingWriteOnce(t *testing.T) {
+	now := time.Now()
+	clock, counter := clock.NewFakeEventClock(now, 0, nil)
+	var lock sync.Mutex
+	wr := NewWriteOnce(&lock, counter)
+	var gots int32
+	var got atomic.Value
+	counter.Add(1)
+	go func() {
+		got.Store(wr.Get())
+		atomic.AddInt32(&gots, 1)
+		counter.Add(-1)
+	}()
+	clock.Run(nil)
+	time.Sleep(time.Second)
+	if atomic.LoadInt32(&gots) != 0 {
+		t.Error("Get returned before Set")
+	}
+	if wr.IsSet() {
+		t.Error("IsSet before Set")
+	}
+	aval := &now
+	if !wr.Set(aval) {
+		t.Error("Set() returned false")
+	}
+	clock.Run(nil)
+	time.Sleep(time.Second)
+	if atomic.LoadInt32(&gots) != 1 {
+		t.Error("Get did not return after Set")
+	}
+	if got.Load() != aval {
+		t.Error("Get did not return what was Set")
+	}
+	if !wr.IsSet() {
+		t.Error("IsSet()==false after Set")
+	}
+	counter.Add(1)
+	go func() {
+		got.Store(wr.Get())
+		atomic.AddInt32(&gots, 1)
+		counter.Add(-1)
+	}()
+	clock.Run(nil)
+	time.Sleep(time.Second)
+	if atomic.LoadInt32(&gots) != 2 {
+		t.Error("Second Get did not return immediately")
+	}
+	if got.Load() != aval {
+		t.Error("Second Get did not return what was Set")
+	}
+	if !wr.IsSet() {
+		t.Error("IsSet()==false after second Set")
+	}
+	later := time.Now()
+	bval := &later
+	if wr.Set(bval) {
+		t.Error("second Set() returned true")
+	}
+	if !wr.IsSet() {
+		t.Error("IsSet() returned false after second set")
+	} else if wr.Get() != aval {
+		t.Error("Get() after second Set returned wrong value")
+	}
 }
diff --git a/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/queueset/queueset.go b/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/queueset/queueset.go
index 7b789e7ca14..4a3945b6614 100644
--- a/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/queueset/queueset.go
+++ b/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/queueset/queueset.go
@@ -22,10 +22,10 @@ import (
 	"sync"
 	"time"
 
-	"k8s.io/apimachinery/pkg/util/runtime"
-
 	"github.com/pkg/errors"
+
 	"k8s.io/apimachinery/pkg/util/clock"
+	"k8s.io/apimachinery/pkg/util/runtime"
 	"k8s.io/apiserver/pkg/util/flowcontrol/counter"
 	fq "k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing"
 	"k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/promise/lockingpromise"
@@ -43,12 +43,13 @@ type queueSetFactory struct {
 	clock   clock.PassiveClock
 }
 
-// NewQueueSetFactory creates a new QueueSetFactory object
-func NewQueueSetFactory(c clock.PassiveClock, counter counter.GoRoutineCounter) fq.QueueSetFactory {
-	return &queueSetFactory{
-		counter: counter,
-		clock:   c,
-	}
+// `*queueSetCompleter` implements QueueSetCompleter.  Exactly one of
+// the fields `factory` and `theSet` is non-nil.
+type queueSetCompleter struct {
+	factory *queueSetFactory
+	theSet  *queueSet
+	qCfg    fq.QueuingConfig
+	dealer  *shufflesharding.Dealer
 }
 
 // queueSet implements the Fair Queuing for Server Requests technique
@@ -65,12 +66,19 @@ type queueSet struct {
 
 	lock sync.Mutex
 
-	// config holds the current configuration.  Its DesiredNumQueues
-	// may be less than the current number of queues.  If its
-	// DesiredNumQueues is zero then its other queuing parameters
-	// retain the settings they had when DesiredNumQueues was last
-	// non-zero (if ever).
-	config fq.QueueSetConfig
+	// qCfg holds the current queuing configuration.  Its
+	// DesiredNumQueues may be less than the current number of queues.
+	// If its DesiredNumQueues is zero then its other queuing
+	// parameters retain the settings they had when DesiredNumQueues
+	// was last non-zero (if ever).
+	qCfg fq.QueuingConfig
+
+	// the current dispatching configuration.
+	dCfg fq.DispatchingConfig
+
+	// If `config.DesiredNumQueues` is non-zero then dealer is not nil
+	// and is good for `config`.
+	dealer *shufflesharding.Dealer
 
 	// queues may be longer than the desired number, while the excess
 	// queues are still draining.
@@ -96,24 +104,55 @@ type queueSet struct {
 	totRequestsExecuting int
 
 	emptyHandler fq.EmptyHandler
-	dealer       *shufflesharding.Dealer
 }
 
-// NewQueueSet creates a new QueueSet object.
-// There is a new QueueSet created for each priority level.
-func (qsf queueSetFactory) NewQueueSet(config fq.QueueSetConfig) (fq.QueueSet, error) {
-	fq := &queueSet{
-		clock:                qsf.clock,
-		counter:              qsf.counter,
-		estimatedServiceTime: 60,
-		config:               config,
-		lastRealTime:         qsf.clock.Now(),
+// NewQueueSetFactory creates a new QueueSetFactory object
+func NewQueueSetFactory(c clock.PassiveClock, counter counter.GoRoutineCounter) fq.QueueSetFactory {
+	return &queueSetFactory{
+		counter: counter,
+		clock:   c,
 	}
-	err := fq.SetConfiguration(config)
+}
+
+func (qsf *queueSetFactory) BeginConstruction(qCfg fq.QueuingConfig) (fq.QueueSetCompleter, error) {
+	dealer, err := checkConfig(qCfg)
 	if err != nil {
 		return nil, err
 	}
-	return fq, nil
+	return &queueSetCompleter{
+		factory: qsf,
+		qCfg:    qCfg,
+		dealer:  dealer}, nil
+}
+
+// checkConfig returns a non-nil Dealer if the config is valid and
+// calls for one, and returns a non-nil error if the given config is
+// invalid.
+func checkConfig(qCfg fq.QueuingConfig) (*shufflesharding.Dealer, error) {
+	if qCfg.DesiredNumQueues == 0 {
+		return nil, nil
+	}
+	dealer, err := shufflesharding.NewDealer(qCfg.DesiredNumQueues, qCfg.HandSize)
+	if err != nil {
+		err = errors.Wrap(err, "the QueueSetConfig implies an invalid shuffle sharding config (DesiredNumQueues is deckSize)")
+	}
+	return dealer, err
+}
+
+func (qsc *queueSetCompleter) Complete(dCfg fq.DispatchingConfig) fq.QueueSet {
+	qs := qsc.theSet
+	if qs == nil {
+		qs = &queueSet{
+			clock:                qsc.factory.clock,
+			counter:              qsc.factory.counter,
+			estimatedServiceTime: 60,
+			qCfg:                 qsc.qCfg,
+			virtualTime:          0,
+			lastRealTime:         qsc.factory.clock.Now(),
+		}
+	}
+	qs.setConfiguration(qsc.qCfg, qsc.dealer, dCfg)
+	return qs
 }
 
 // createQueues is a helper method for initializing an array of n queues
@@ -125,40 +164,45 @@ func createQueues(n, baseIndex int) []*queue {
 	return fqqueues
 }
 
-// SetConfiguration is used to set the configuration for a queueSet
-// update handling for when fields are updated is handled here as well -
+func (qs *queueSet) BeginConfigChange(qCfg fq.QueuingConfig) (fq.QueueSetCompleter, error) {
+	dealer, err := checkConfig(qCfg)
+	if err != nil {
+		return nil, err
+	}
+	return &queueSetCompleter{
+		theSet: qs,
+		qCfg:   qCfg,
+		dealer: dealer}, nil
+}
+
+// SetConfiguration is used to set the configuration for a queueSet.
+// Update handling for when fields are updated is handled here as well -
 // eg: if DesiredNum is increased, SetConfiguration reconciles by
 // adding more queues.
-func (qs *queueSet) SetConfiguration(config fq.QueueSetConfig) error {
+func (qs *queueSet) setConfiguration(qCfg fq.QueuingConfig, dealer *shufflesharding.Dealer, dCfg fq.DispatchingConfig) {
 	qs.lockAndSyncTime()
 	defer qs.lock.Unlock()
-	var dealer *shufflesharding.Dealer
 
-	if config.DesiredNumQueues > 0 {
-		var err error
-		dealer, err = shufflesharding.NewDealer(config.DesiredNumQueues, config.HandSize)
-		if err != nil {
-			return errors.Wrap(err, "shuffle sharding dealer creation failed")
-		}
+	if qCfg.DesiredNumQueues > 0 {
 		// Adding queues is the only thing that requires immediate action
 		// Removing queues is handled by omitting indexes >DesiredNum from
 		// chooseQueueIndexLocked
 		numQueues := len(qs.queues)
-		if config.DesiredNumQueues > numQueues {
+		if qCfg.DesiredNumQueues > numQueues {
 			qs.queues = append(qs.queues,
-				createQueues(config.DesiredNumQueues-numQueues, len(qs.queues))...)
+				createQueues(qCfg.DesiredNumQueues-numQueues, len(qs.queues))...)
 		}
 	} else {
-		config.QueueLengthLimit = qs.config.QueueLengthLimit
-		config.HandSize = qs.config.HandSize
-		config.RequestWaitLimit = qs.config.RequestWaitLimit
+		qCfg.QueueLengthLimit = qs.qCfg.QueueLengthLimit
+		qCfg.HandSize = qs.qCfg.HandSize
+		qCfg.RequestWaitLimit = qs.qCfg.RequestWaitLimit
 	}
 
-	qs.config = config
+	qs.qCfg = qCfg
+	qs.dCfg = dCfg
 	qs.dealer = dealer
 
 	qs.dispatchAsMuchAsPossibleLocked()
-	return nil
 }
 
 // Quiesce controls whether the QueueSet is operating normally or is quiescing.
@@ -211,24 +255,30 @@ const (
 func (qs *queueSet) Wait(ctx context.Context, hashValue uint64, descr1, descr2 interface{}) (tryAnother, execute bool, afterExecution func()) {
 	var req *request
 	decision := func() requestDecision {
+		// Decide what to do and update metrics accordingly.  Metrics
+		// about total requests queued and executing are updated on
+		// each way out of this function rather than in lower level
+		// functions because there can be multiple lower level changes
+		// in one invocation here.
 		qs.lockAndSyncTime()
 		defer qs.lock.Unlock()
 		// A call to Wait while the system is quiescing will be rebuffed by
 		// returning `tryAnother=true`.
 		if qs.emptyHandler != nil {
-			klog.V(5).Infof("QS(%s): rebuffing request %#+v %#+v with TryAnother", qs.config.Name, descr1, descr2)
+			klog.V(5).Infof("QS(%s): rebuffing request %#+v %#+v with TryAnother", qs.qCfg.Name, descr1, descr2)
 			return decisionTryAnother
 		}
 
 		// ========================================================================
 		// Step 0:
 		// Apply only concurrency limit, if zero queues desired
-		if qs.config.DesiredNumQueues < 1 {
-			if qs.totRequestsExecuting >= qs.config.ConcurrencyLimit {
-				klog.V(5).Infof("QS(%s): rejecting request %#+v %#+v because %d are executing and the limit is %d", qs.config.Name, descr1, descr2, qs.totRequestsExecuting, qs.config.ConcurrencyLimit)
+		if qs.qCfg.DesiredNumQueues < 1 {
+			if qs.totRequestsExecuting >= qs.dCfg.ConcurrencyLimit {
+				klog.V(5).Infof("QS(%s): rejecting request %#+v %#+v because %d are executing and the limit is %d", qs.qCfg.Name, descr1, descr2, qs.totRequestsExecuting, qs.dCfg.ConcurrencyLimit)
 				return decisionReject
 			}
 			req = qs.dispatchSansQueue(descr1, descr2)
+			metrics.UpdateFlowControlRequestsExecuting(qs.qCfg.Name, qs.totRequestsExecuting)
 			return decisionExecute
 		}
 
@@ -240,11 +290,12 @@ func (qs *queueSet) Wait(ctx context.Context, hashValue uint64, descr1, descr2 i
 		// we are at max queue length
 		// 4) If not rejected, create a request and enqueue
 		req = qs.timeoutOldRequestsAndRejectOrEnqueueLocked(hashValue, descr1, descr2)
+		defer metrics.UpdateFlowControlRequestsInQueue(qs.qCfg.Name, qs.totRequestsWaiting)
 		// req == nil means that the request was rejected - no remaining
 		// concurrency shares and at max queue length already
 		if req == nil {
-			klog.V(5).Infof("QS(%s): rejecting request %#+v %#+v due to queue full", qs.config.Name, descr1, descr2)
-			metrics.AddReject(qs.config.Name, "queue-full")
+			klog.V(5).Infof("QS(%s): rejecting request %#+v %#+v due to queue full", qs.qCfg.Name, descr1, descr2)
+			metrics.AddReject(qs.qCfg.Name, "queue-full")
 			return decisionReject
 		}
 
@@ -258,6 +309,7 @@ func (qs *queueSet) Wait(ctx context.Context, hashValue uint64, descr1, descr2 i
 		// fair queuing technique to pick a queue and dispatch a
 		// request from that queue.
 		qs.dispatchAsMuchAsPossibleLocked()
+		defer metrics.UpdateFlowControlRequestsExecuting(qs.qCfg.Name, qs.totRequestsExecuting)
 
 		// ========================================================================
 		// Step 3:
@@ -274,8 +326,8 @@ func (qs *queueSet) Wait(ctx context.Context, hashValue uint64, descr1, descr2 i
 				qs.goroutineDoneOrBlocked()
 				select {
 				case <-doneCh:
-					klog.V(6).Infof("QS(%s): Context of request %#+v %#+v is Done", qs.config.Name, descr1, descr2)
-					req.decision.Set(decisionCancel)
+					klog.V(6).Infof("QS(%s): Context of request %#+v %#+v is Done", qs.qCfg.Name, descr1, descr2)
+					qs.cancelWait(req)
 				}
 				qs.goroutineDoneOrBlocked()
 			}()
@@ -286,40 +338,24 @@ func (qs *queueSet) Wait(ctx context.Context, hashValue uint64, descr1, descr2 i
 		// The final step in Wait is to wait on a decision from
 		// somewhere and then act on it.
 		decisionAny := req.decision.GetLocked()
-		var decision requestDecision
-		switch dec := decisionAny.(type) {
-		case requestDecision:
-			decision = dec
-		default:
-			klog.Errorf("QS(%s): Impossible decision %#+v (of type %T) for request %#+v %#+v", qs.config.Name, decisionAny, decisionAny, descr1, descr2)
-			decision = decisionExecute
+		qs.syncTimeLocked()
+		decision, isDecision := decisionAny.(requestDecision)
+		if !isDecision {
+			klog.Errorf("QS(%s): Impossible decision %#+v (of type %T) for request %#+v %#+v", qs.qCfg.Name, decisionAny, decisionAny, descr1, descr2)
+			decision = decisionExecute // yeah, this is a no-op
 		}
 		switch decision {
 		case decisionReject:
-			klog.V(5).Infof("QS(%s): request %#+v %#+v timed out after being enqueued\n", qs.config.Name, descr1, descr2)
-			metrics.AddReject(qs.config.Name, "time-out")
+			klog.V(5).Infof("QS(%s): request %#+v %#+v timed out after being enqueued\n", qs.qCfg.Name, descr1, descr2)
+			metrics.AddReject(qs.qCfg.Name, "time-out")
 		case decisionCancel:
-			qs.syncTimeLocked()
-			// TODO(aaron-prindle) add metrics to these two cases
-			if req.isWaiting {
-				klog.V(5).Infof("QS(%s): Ejecting request %#+v %#+v from its queue", qs.config.Name, descr1, descr2)
-				// remove the request from the queue as it has timed out
-				for i := range req.queue.requests {
-					if req == req.queue.requests[i] {
-						// remove the request
-						req.queue.requests = append(req.queue.requests[:i],
-							req.queue.requests[i+1:]...)
-						break
-					}
-				}
-				// At this point, if the qs is quiescing,
-				// has zero requests executing, and has zero requests enqueued
-				// then a call to the EmptyHandler should be forked.
-				qs.maybeForkEmptyHandlerLocked()
-			} else {
-				klog.V(5).Infof("QS(%s): request %#+v %#+v canceled shortly after dispatch", qs.config.Name, descr1, descr2)
-			}
+			// TODO(aaron-prindle) add metrics for this case
+			klog.V(5).Infof("QS(%s): Ejecting request %#+v %#+v from its queue", qs.qCfg.Name, descr1, descr2)
 		}
+		// At this point, if the qs is quiescing,
+		// has zero requests executing, and has zero requests enqueued
+		// then a call to the EmptyHandler should be forked.
+		qs.maybeForkEmptyHandlerLocked()
 		return decision
 	}()
 	switch decision {
@@ -370,7 +406,7 @@ func (qs *queueSet) getVirtualTimeRatio() float64 {
 	if activeQueues == 0 {
 		return 0
 	}
-	return math.Min(float64(reqs), float64(qs.config.ConcurrencyLimit)) / float64(activeQueues)
+	return math.Min(float64(reqs), float64(qs.dCfg.ConcurrencyLimit)) / float64(activeQueues)
 }
 
 // timeoutOldRequestsAndRejectOrEnqueueLocked encapsulates the logic required
@@ -395,7 +431,7 @@ func (qs *queueSet) timeoutOldRequestsAndRejectOrEnqueueLocked(hashValue uint64,
 
 	// Create a request and enqueue
 	req := &request{
-		decision:    lockingpromise.NewLockingPromise(&qs.lock, qs.counter),
+		decision:    lockingpromise.NewWriteOnce(&qs.lock, qs.counter),
 		arrivalTime: qs.clock.Now(),
 		queue:       queue,
 		descr1:      descr1,
@@ -404,7 +440,7 @@ func (qs *queueSet) timeoutOldRequestsAndRejectOrEnqueueLocked(hashValue uint64,
 	if ok := qs.rejectOrEnqueueLocked(req); !ok {
 		return nil
 	}
-	metrics.ObserveQueueLength(qs.config.Name, len(queue.requests))
+	metrics.ObserveQueueLength(qs.qCfg.Name, len(queue.requests))
 	return req
 }
 
@@ -415,13 +451,16 @@ func (qs *queueSet) chooseQueueIndexLocked(hashValue uint64, descr1, descr2 inte
 	bestQueueLen := int(math.MaxInt32)
 	// the dealer uses the current desired number of queues, which is no larger than the number in `qs.queues`.
 	qs.dealer.Deal(hashValue, func(queueIdx int) {
+		if queueIdx < 0 || queueIdx >= len(qs.queues) {
+			return
+		}
 		thisLen := len(qs.queues[queueIdx].requests)
-		klog.V(7).Infof("QS(%s): For request %#+v %#+v considering queue %d of length %d", qs.config.Name, descr1, descr2, queueIdx, thisLen)
+		klog.V(7).Infof("QS(%s): For request %#+v %#+v considering queue %d of length %d", qs.qCfg.Name, descr1, descr2, queueIdx, thisLen)
 		if thisLen < bestQueueLen {
 			bestQueueIdx, bestQueueLen = queueIdx, thisLen
 		}
 	})
-	klog.V(6).Infof("QS(%s): For request %#+v %#+v chose queue %d, had %d waiting & %d executing", qs.config.Name, descr1, descr2, bestQueueIdx, bestQueueLen, qs.queues[bestQueueIdx].requestsExecuting)
+	klog.V(6).Infof("QS(%s): For request %#+v %#+v chose queue %d, had %d waiting & %d executing", qs.qCfg.Name, descr1, descr2, bestQueueIdx, bestQueueLen, qs.queues[bestQueueIdx].requestsExecuting)
 	return bestQueueIdx
 }
 
@@ -436,7 +475,7 @@ func (qs *queueSet) removeTimedOutRequestsFromQueueLocked(queue *queue) {
 	// as newer requests also will not have timed out
 
 	// now - requestWaitLimit = waitLimit
-	waitLimit := now.Add(-qs.config.RequestWaitLimit)
+	waitLimit := now.Add(-qs.qCfg.RequestWaitLimit)
 	for i, req := range reqs {
 		if waitLimit.After(req.arrivalTime) {
 			req.decision.SetLocked(decisionReject)
@@ -463,8 +502,8 @@ func (qs *queueSet) rejectOrEnqueueLocked(request *request) bool {
 	queue := request.queue
 	curQueueLength := len(queue.requests)
 	// rejects the newly arrived request if resource criteria not met
-	if qs.totRequestsExecuting >= qs.config.ConcurrencyLimit &&
-		curQueueLength >= qs.config.QueueLengthLimit {
+	if qs.totRequestsExecuting >= qs.dCfg.ConcurrencyLimit &&
+		curQueueLength >= qs.qCfg.QueueLengthLimit {
 		return false
 	}
 
@@ -479,12 +518,11 @@ func (qs *queueSet) enqueueLocked(request *request) {
 		// the queue’s virtual start time is set to the virtual time.
 		queue.virtualStart = qs.virtualTime
 		if klog.V(6) {
-			klog.Infof("QS(%s) at r=%s v=%.9fs: initialized queue %d virtual start time due to request %#+v %#+v", qs.config.Name, qs.clock.Now().Format(nsTimeFmt), queue.virtualStart, queue.index, request.descr1, request.descr2)
+			klog.Infof("QS(%s) at r=%s v=%.9fs: initialized queue %d virtual start time due to request %#+v %#+v", qs.qCfg.Name, qs.clock.Now().Format(nsTimeFmt), queue.virtualStart, queue.index, request.descr1, request.descr2)
 		}
 	}
 	queue.Enqueue(request)
 	qs.totRequestsWaiting++
-	metrics.UpdateFlowControlRequestsInQueue(qs.config.Name, qs.totRequestsWaiting)
 }
 
 // dispatchAsMuchAsPossibleLocked runs a loop, as long as there
@@ -494,7 +532,7 @@ func (qs *queueSet) enqueueLocked(request *request) {
 // queue, increment the count of the number executing, and send true
 // to the request's channel.
 func (qs *queueSet) dispatchAsMuchAsPossibleLocked() {
-	for qs.totRequestsWaiting != 0 && qs.totRequestsExecuting < qs.config.ConcurrencyLimit {
+	for qs.totRequestsWaiting != 0 && qs.totRequestsExecuting < qs.dCfg.ConcurrencyLimit {
 		ok := qs.dispatchLocked()
 		if !ok {
 			break
@@ -512,9 +550,8 @@ func (qs *queueSet) dispatchSansQueue(descr1, descr2 interface{}) *request {
 	}
 	qs.totRequestsExecuting++
 	if klog.V(5) {
-		klog.Infof("QS(%s) at r=%s v=%.9fs: immediate dispatch of request %#+v %#+v, qs will have %d executing", qs.config.Name, now.Format(nsTimeFmt), qs.virtualTime, descr1, descr2, qs.totRequestsExecuting)
+		klog.Infof("QS(%s) at r=%s v=%.9fs: immediate dispatch of request %#+v %#+v, qs will have %d executing", qs.qCfg.Name, now.Format(nsTimeFmt), qs.virtualTime, descr1, descr2, qs.totRequestsExecuting)
 	}
-	metrics.UpdateFlowControlRequestsExecuting(qs.config.Name, qs.totRequestsExecuting)
 	return req
 }
 
@@ -532,20 +569,46 @@ func (qs *queueSet) dispatchLocked() bool {
 		return false
 	}
 	request.startTime = qs.clock.Now()
-	// request dequeued, service has started
+	// At this moment the request leaves its queue and starts
+	// executing.  We do not recognize any interim state between
+	// "queued" and "executing".  While that means "executing"
+	// includes a little overhead from this package, this is not a
+	// problem because other overhead is also included.
 	qs.totRequestsWaiting--
 	qs.totRequestsExecuting++
 	queue.requestsExecuting++
 	if klog.V(6) {
-		klog.Infof("QS(%s) at r=%s v=%.9fs: dispatching request %#+v %#+v from queue %d with virtual start time %.9fs, queue will have %d waiting & %d executing", qs.config.Name, request.startTime.Format(nsTimeFmt), qs.virtualTime, request.descr1, request.descr2, queue.index, queue.virtualStart, len(queue.requests), queue.requestsExecuting)
+		klog.Infof("QS(%s) at r=%s v=%.9fs: dispatching request %#+v %#+v from queue %d with virtual start time %.9fs, queue will have %d waiting & %d executing", qs.qCfg.Name, request.startTime.Format(nsTimeFmt), qs.virtualTime, request.descr1, request.descr2, queue.index, queue.virtualStart, len(queue.requests), queue.requestsExecuting)
 	}
 	// When a request is dequeued for service -> qs.virtualStart += G
 	queue.virtualStart += qs.estimatedServiceTime
-	metrics.UpdateFlowControlRequestsExecuting(qs.config.Name, qs.totRequestsExecuting)
 	request.decision.SetLocked(decisionExecute)
 	return ok
 }
 
+// cancelWait ensures the request is not waiting
+func (qs *queueSet) cancelWait(req *request) {
+	qs.lock.Lock()
+	defer qs.lock.Unlock()
+	if req.decision.IsSetLocked() {
+		// The request has already been removed from the queue
+		// and so we consider its wait to be over.
+		return
+	}
+	req.decision.SetLocked(decisionCancel)
+	queue := req.queue
+	// remove the request from the queue as it has timed out
+	for i := range queue.requests {
+		if req == queue.requests[i] {
+			// remove the request
+			queue.requests = append(queue.requests[:i], queue.requests[i+1:]...)
+			qs.totRequestsWaiting--
+			break
+		}
+	}
+	return
+}
+
 // selectQueueLocked examines the queues in round robin order and
 // returns the first one of those for which the virtual finish time of
 // the oldest waiting request is minimal.
@@ -583,6 +646,8 @@ func (qs *queueSet) finishRequestAndDispatchAsMuchAsPossible(req *request) {
 
 	qs.finishRequestLocked(req)
 	qs.dispatchAsMuchAsPossibleLocked()
+	metrics.UpdateFlowControlRequestsInQueue(qs.qCfg.Name, qs.totRequestsWaiting)
+	metrics.UpdateFlowControlRequestsExecuting(qs.qCfg.Name, qs.totRequestsExecuting)
 }
 
 // finishRequestLocked is a callback that should be used when a
@@ -590,11 +655,10 @@ func (qs *queueSet) finishRequestAndDispatchAsMuchAsPossible(req *request) {
 // callback updates important state in the queueSet
 func (qs *queueSet) finishRequestLocked(r *request) {
 	qs.totRequestsExecuting--
-	metrics.UpdateFlowControlRequestsExecuting(qs.config.Name, qs.totRequestsExecuting)
 
 	if r.queue == nil {
 		if klog.V(6) {
-			klog.Infof("QS(%s) at r=%s v=%.9fs: request %#+v %#+v finished, qs will have %d executing", qs.config.Name, qs.clock.Now().Format(nsTimeFmt), qs.virtualTime, r.descr1, r.descr2, qs.totRequestsExecuting)
+			klog.Infof("QS(%s) at r=%s v=%.9fs: request %#+v %#+v finished, qs will have %d executing", qs.qCfg.Name, qs.clock.Now().Format(nsTimeFmt), qs.virtualTime, r.descr1, r.descr2, qs.totRequestsExecuting)
 		}
 		return
 	}
@@ -609,12 +673,12 @@ func (qs *queueSet) finishRequestLocked(r *request) {
 	r.queue.requestsExecuting--
 
 	if klog.V(6) {
-		klog.Infof("QS(%s) at r=%s v=%.9fs: request %#+v %#+v finished, adjusted queue %d virtual start time to %.9fs due to service time %.9fs, queue will have %d waiting & %d executing", qs.config.Name, qs.clock.Now().Format(nsTimeFmt), qs.virtualTime, r.descr1, r.descr2, r.queue.index, r.queue.virtualStart, S, len(r.queue.requests), r.queue.requestsExecuting)
+		klog.Infof("QS(%s) at r=%s v=%.9fs: request %#+v %#+v finished, adjusted queue %d virtual start time to %.9fs due to service time %.9fs, queue will have %d waiting & %d executing", qs.qCfg.Name, qs.clock.Now().Format(nsTimeFmt), qs.virtualTime, r.descr1, r.descr2, r.queue.index, r.queue.virtualStart, S, len(r.queue.requests), r.queue.requestsExecuting)
 	}
 
 	// If there are more queues than desired and this one has no
 	// requests then remove it
-	if len(qs.queues) > qs.config.DesiredNumQueues &&
+	if len(qs.queues) > qs.qCfg.DesiredNumQueues &&
 		len(r.queue.requests) == 0 &&
 		r.queue.requestsExecuting == 0 {
 		qs.queues = removeQueueAndUpdateIndexes(qs.queues, r.queue.index)
diff --git a/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/queueset/queueset_test.go b/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/queueset/queueset_test.go
index 024f7805a55..d6a98c457fa 100644
--- a/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/queueset/queueset_test.go
+++ b/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/queueset/queueset_test.go
@@ -141,12 +141,11 @@ func init() {
 func TestNoRestraint(t *testing.T) {
 	now := time.Now()
 	clk, counter := clock.NewFakeEventClock(now, 0, nil)
-	nrf := test.NewNoRestraintFactory()
-	config := fq.QueueSetConfig{}
-	nr, err := nrf.NewQueueSet(config)
+	nrc, err := test.NewNoRestraintFactory().BeginConstruction(fq.QueuingConfig{})
 	if err != nil {
-		t.Fatalf("QueueSet creation failed with %v", err)
+		t.Fatal(err)
 	}
+	nr := nrc.Complete(fq.DispatchingConfig{})
 	exerciseQueueSetUniformScenario(t, "NoRestraint", nr, []uniformClient{
 		{1001001001, 5, 10, time.Second, time.Second},
 		{2002002002, 2, 10, time.Second, time.Second / 2},
@@ -158,18 +157,18 @@ func TestUniformFlows(t *testing.T) {
 
 	clk, counter := clock.NewFakeEventClock(now, 0, nil)
 	qsf := NewQueueSetFactory(clk, counter)
-	config := fq.QueueSetConfig{
+	qCfg := fq.QueuingConfig{
 		Name:             "TestUniformFlows",
-		ConcurrencyLimit: 4,
 		DesiredNumQueues: 8,
 		QueueLengthLimit: 6,
 		HandSize:         3,
 		RequestWaitLimit: 10 * time.Minute,
 	}
-	qs, err := qsf.NewQueueSet(config)
+	qsc, err := qsf.BeginConstruction(qCfg)
 	if err != nil {
-		t.Fatalf("QueueSet creation failed with %v", err)
+		t.Fatal(err)
 	}
+	qs := qsc.Complete(fq.DispatchingConfig{ConcurrencyLimit: 4})
 
 	exerciseQueueSetUniformScenario(t, "UniformFlows", qs, []uniformClient{
 		{1001001001, 5, 10, time.Second, time.Second},
@@ -182,18 +181,18 @@ func TestDifferentFlows(t *testing.T) {
 
 	clk, counter := clock.NewFakeEventClock(now, 0, nil)
 	qsf := NewQueueSetFactory(clk, counter)
-	config := fq.QueueSetConfig{
+	qCfg := fq.QueuingConfig{
 		Name:             "TestDifferentFlows",
-		ConcurrencyLimit: 4,
 		DesiredNumQueues: 8,
 		QueueLengthLimit: 6,
 		HandSize:         3,
 		RequestWaitLimit: 10 * time.Minute,
 	}
-	qs, err := qsf.NewQueueSet(config)
+	qsc, err := qsf.BeginConstruction(qCfg)
 	if err != nil {
-		t.Fatalf("QueueSet creation failed with %v", err)
+		t.Fatal(err)
 	}
+	qs := qsc.Complete(fq.DispatchingConfig{ConcurrencyLimit: 4})
 
 	exerciseQueueSetUniformScenario(t, "DifferentFlows", qs, []uniformClient{
 		{1001001001, 6, 10, time.Second, time.Second},
@@ -206,18 +205,15 @@ func TestDifferentFlowsWithoutQueuing(t *testing.T) {
 
 	clk, counter := clock.NewFakeEventClock(now, 0, nil)
 	qsf := NewQueueSetFactory(clk, counter)
-	config := fq.QueueSetConfig{
+	qCfg := fq.QueuingConfig{
 		Name:             "TestDifferentFlowsWithoutQueuing",
-		ConcurrencyLimit: 4,
 		DesiredNumQueues: 0,
-		QueueLengthLimit: 6,
-		HandSize:         3,
-		RequestWaitLimit: 10 * time.Minute,
 	}
-	qs, err := qsf.NewQueueSet(config)
+	qsc, err := qsf.BeginConstruction(qCfg)
 	if err != nil {
-		t.Fatalf("QueueSet creation failed with %v", err)
+		t.Fatal(err)
 	}
+	qs := qsc.Complete(fq.DispatchingConfig{ConcurrencyLimit: 4})
 
 	exerciseQueueSetUniformScenario(t, "DifferentFlowsWithoutQueuing", qs, []uniformClient{
 		{1001001001, 6, 10, time.Second, 57 * time.Millisecond},
@@ -230,20 +226,65 @@ func TestTimeout(t *testing.T) {
 
 	clk, counter := clock.NewFakeEventClock(now, 0, nil)
 	qsf := NewQueueSetFactory(clk, counter)
-	config := fq.QueueSetConfig{
+	qCfg := fq.QueuingConfig{
 		Name:             "TestTimeout",
-		ConcurrencyLimit: 1,
 		DesiredNumQueues: 128,
 		QueueLengthLimit: 128,
 		HandSize:         1,
 		RequestWaitLimit: 0,
 	}
-	qs, err := qsf.NewQueueSet(config)
+	qsc, err := qsf.BeginConstruction(qCfg)
 	if err != nil {
-		t.Fatalf("QueueSet creation failed with %v", err)
+		t.Fatal(err)
 	}
+	qs := qsc.Complete(fq.DispatchingConfig{ConcurrencyLimit: 1})
 
 	exerciseQueueSetUniformScenario(t, "Timeout", qs, []uniformClient{
 		{1001001001, 5, 100, time.Second, time.Second},
 	}, time.Second*10, true, false, clk, counter)
 }
+
+func TestContextCancel(t *testing.T) {
+	now := time.Now()
+	clk, counter := clock.NewFakeEventClock(now, 0, nil)
+	qsf := NewQueueSetFactory(clk, counter)
+	qCfg := fq.QueuingConfig{
+		Name:             "TestTimeout",
+		DesiredNumQueues: 11,
+		QueueLengthLimit: 11,
+		HandSize:         1,
+		RequestWaitLimit: 15 * time.Second,
+	}
+	qsc, err := qsf.BeginConstruction(qCfg)
+	if err != nil {
+		t.Fatal(err)
+	}
+	qs := qsc.Complete(fq.DispatchingConfig{ConcurrencyLimit: 1})
+	counter.Add(1) // account for the goroutine running this test
+	ctx1 := context.Background()
+	another1, exec1, cleanup1 := qs.Wait(ctx1, 1, "test", "one")
+	if another1 || !exec1 {
+		t.Errorf("Unexpected: another1=%v, exec1=%v", another1, exec1)
+		return
+	}
+	defer cleanup1()
+	ctx2, cancel2 := context.WithCancel(context.Background())
+	tBefore := time.Now()
+	go func() {
+		time.Sleep(time.Second)
+		cancel2()
+	}()
+	another2, exec2, cleanup2 := qs.Wait(ctx2, 2, "test", "two")
+	tAfter := time.Now()
+	if another2 || exec2 {
+		t.Errorf("Unexpected: another2=%v, exec2=%v", another2, exec2)
+		if exec2 {
+			defer cleanup2()
+		}
+	} else {
+		dt := tAfter.Sub(tBefore)
+		if dt < time.Second || dt > 2*time.Second {
+			t.Errorf("Unexpected: dt=%d", dt)
+		}
+	}
+}
diff --git a/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/queueset/types.go b/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/queueset/types.go
index 5d0ce2b39e3..d45f36b9b7c 100644
--- a/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/queueset/types.go
+++ b/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/queueset/types.go
@@ -30,15 +30,16 @@ type request struct {
 	// startTime is the real time when the request began executing
 	startTime time.Time
 
-	// decision gets set to the decision about what to do with this request
-	decision promise.LockingMutable
+	// decision gets set to a `requestDecision` indicating what to do
+	// with this request.  It gets set exactly once, when the request
+	// is removed from its queue.  The value will be decisionReject,
+	// decisionCancel, or decisionExecute; decisionTryAnother never
+	// appears here.
+	decision promise.LockingWriteOnce
 
 	// arrivalTime is the real time when the request entered this system
 	arrivalTime time.Time
 
-	// isWaiting indicates whether the request is presently waiting in a queue
-	isWaiting bool
-
 	// descr1 and descr2 are not used in any logic but they appear in
 	// log messages
 	descr1, descr2 interface{}
@@ -60,7 +61,6 @@ type queue struct {
 
 // Enqueue enqueues a request into the queue
 func (q *queue) Enqueue(request *request) {
-	request.isWaiting = true
 	q.requests = append(q.requests, request)
 }
 
@@ -71,8 +71,6 @@ func (q *queue) Dequeue() (*request, bool) {
 	}
 	request := q.requests[0]
 	q.requests = q.requests[1:]
-
-	request.isWaiting = false
 	return request, true
 }
 
diff --git a/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/testing/no-restraint.go b/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/testing/no-restraint.go
index 5ac48be94d8..ce0462ae77f 100644
--- a/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/testing/no-restraint.go
+++ b/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/fairqueuing/testing/no-restraint.go
@@ -31,14 +31,20 @@ func NewNoRestraintFactory() fq.QueueSetFactory {
 
 type noRestraintFactory struct{}
 
-func (noRestraintFactory) NewQueueSet(config fq.QueueSetConfig) (fq.QueueSet, error) {
-	return noRestraint{}, nil
-}
+type noRestraintCompeter struct{}
 
 type noRestraint struct{}
 
-func (noRestraint) SetConfiguration(config fq.QueueSetConfig) error {
-	return nil
+func (noRestraintFactory) BeginConstruction(qCfg fq.QueuingConfig) (fq.QueueSetCompleter, error) {
+	return noRestraintCompeter{}, nil
+}
+
+func (noRestraintCompeter) Complete(dCfg fq.DispatchingConfig) fq.QueueSet {
+	return noRestraint{}
+}
+
+func (noRestraint) BeginConfigChange(qCfg fq.QueuingConfig) (fq.QueueSetCompleter, error) {
+	return noRestraintCompeter{}, nil
 }
 
 func (noRestraint) Quiesce(fq.EmptyHandler) {