diff --git a/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/apf_controller.go b/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/apf_controller.go
index 3b2b4a1738e..7d53dbee7e9 100644
--- a/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/apf_controller.go
+++ b/staging/src/k8s.io/apiserver/pkg/util/flowcontrol/apf_controller.go
@@ -539,7 +539,7 @@ func (meal *cfgMeal) digestNewPLsLocked(newPLs []*flowcontrol.PriorityLevelConfi
 		state := meal.cfgCtlr.priorityLevelStates[pl.Name]
 		if state == nil {
 			labelValues := []string{pl.Name}
-			state = &priorityLevelState{reqsObsPair: meal.cfgCtlr.reqsObsPairGenerator.Generate(1, 1, labelValues), execSeatsObs: meal.cfgCtlr.execSeatsObsGenerator.Generate(1, 1, labelValues)}
+			state = &priorityLevelState{reqsObsPair: meal.cfgCtlr.reqsObsPairGenerator.Generate(1, 1, labelValues), execSeatsObs: meal.cfgCtlr.execSeatsObsGenerator.Generate(0, 1, labelValues)}
 		}
 		qsCompleter, err := queueSetCompleterForPL(meal.cfgCtlr.queueSetFactory, state.queues, pl, meal.cfgCtlr.requestWaitLimit, state.reqsObsPair, state.execSeatsObs)
 		if err != nil {
@@ -769,7 +769,7 @@ func (meal *cfgMeal) imaginePL(proto *flowcontrol.PriorityLevelConfiguration, re
 	klog.V(3).Infof("No %s PriorityLevelConfiguration found, imagining one", proto.Name)
 	labelValues := []string{proto.Name}
 	reqsObsPair := meal.cfgCtlr.reqsObsPairGenerator.Generate(1, 1, labelValues)
-	execSeatsObs := meal.cfgCtlr.execSeatsObsGenerator.Generate(1, 1, labelValues)
+	execSeatsObs := meal.cfgCtlr.execSeatsObsGenerator.Generate(0, 1, labelValues)
 	qsCompleter, err := queueSetCompleterForPL(meal.cfgCtlr.queueSetFactory, nil, proto, requestWaitLimit, reqsObsPair, execSeatsObs)
 	if err != nil {
 		// This can not happen because proto is one of the mandatory