diff --git a/block/blk-cgroup.c b/block/blk-cgroup.c
index 8598e4591e79..5e1f10525677 100644
--- a/block/blk-cgroup.c
+++ b/block/blk-cgroup.c
@@ -1440,14 +1440,8 @@ int blkcg_init_disk(struct gendisk *disk)
 	if (ret)
 		goto err_destroy_all;
 
-	ret = blk_throtl_init(disk);
-	if (ret)
-		goto err_ioprio_exit;
-
 	return 0;
 
-err_ioprio_exit:
-	blk_ioprio_exit(disk);
 err_destroy_all:
 	blkg_destroy_all(disk);
 	return ret;
diff --git a/block/blk-sysfs.c b/block/blk-sysfs.c
index 8796c350b33d..f0f9314ab65c 100644
--- a/block/blk-sysfs.c
+++ b/block/blk-sysfs.c
@@ -807,7 +807,6 @@ int blk_register_queue(struct gendisk *disk)
 
 	blk_queue_flag_set(QUEUE_FLAG_REGISTERED, q);
 	wbt_enable_default(disk);
-	blk_throtl_register(disk);
 
 	/* Now everything is ready and send out KOBJ_ADD uevent */
 	kobject_uevent(&disk->queue_kobj, KOBJ_ADD);
diff --git a/block/blk-throttle.c b/block/blk-throttle.c
index d907040859f9..80aaca18bfb0 100644
--- a/block/blk-throttle.c
+++ b/block/blk-throttle.c
@@ -1211,6 +1211,53 @@ static void tg_conf_updated(struct throtl_grp *tg, bool global)
 	}
 }
 
+static int blk_throtl_init(struct gendisk *disk)
+{
+	struct request_queue *q = disk->queue;
+	struct throtl_data *td;
+	int ret;
+
+	td = kzalloc_node(sizeof(*td), GFP_KERNEL, q->node);
+	if (!td)
+		return -ENOMEM;
+
+	INIT_WORK(&td->dispatch_work, blk_throtl_dispatch_work_fn);
+	throtl_service_queue_init(&td->service_queue);
+
+	/*
+	 * Freeze queue before activating policy, to synchronize with IO path,
+	 * which is protected by 'q_usage_counter'.
+	 */
+	blk_mq_freeze_queue(disk->queue);
+	blk_mq_quiesce_queue(disk->queue);
+
+	q->td = td;
+	td->queue = q;
+
+	/* activate policy */
+	ret = blkcg_activate_policy(disk, &blkcg_policy_throtl);
+	if (ret) {
+		q->td = NULL;
+		kfree(td);
+		goto out;
+	}
+
+	if (blk_queue_nonrot(q))
+		td->throtl_slice = DFL_THROTL_SLICE_SSD;
+	else
+		td->throtl_slice = DFL_THROTL_SLICE_HD;
+	td->track_bio_latency = !queue_is_mq(q);
+	if (!td->track_bio_latency)
+		blk_stat_enable_accounting(q);
+
+out:
+	blk_mq_unquiesce_queue(disk->queue);
+	blk_mq_unfreeze_queue(disk->queue);
+
+	return ret;
+}
+
+
 static ssize_t tg_set_conf(struct kernfs_open_file *of,
 			   char *buf, size_t nbytes, loff_t off, bool is_u64)
 {
@@ -1222,6 +1269,16 @@ static ssize_t tg_set_conf(struct kernfs_open_file *of,
 
 	blkg_conf_init(&ctx, buf);
 
+	ret = blkg_conf_open_bdev(&ctx);
+	if (ret)
+		goto out_finish;
+
+	if (!blk_throtl_activated(ctx.bdev->bd_queue)) {
+		ret = blk_throtl_init(ctx.bdev->bd_disk);
+		if (ret)
+			goto out_finish;
+	}
+
 	ret = blkg_conf_prep(blkcg, &blkcg_policy_throtl, &ctx);
 	if (ret)
 		goto out_finish;
@@ -1396,6 +1453,16 @@ static ssize_t tg_set_limit(struct kernfs_open_file *of,
 
 	blkg_conf_init(&ctx, buf);
 
+	ret = blkg_conf_open_bdev(&ctx);
+	if (ret)
+		goto out_finish;
+
+	if (!blk_throtl_activated(ctx.bdev->bd_queue)) {
+		ret = blk_throtl_init(ctx.bdev->bd_disk);
+		if (ret)
+			goto out_finish;
+	}
+
 	ret = blkg_conf_prep(blkcg, &blkcg_policy_throtl, &ctx);
 	if (ret)
 		goto out_finish;
@@ -1488,6 +1555,9 @@ void blk_throtl_cancel_bios(struct gendisk *disk)
 	struct cgroup_subsys_state *pos_css;
 	struct blkcg_gq *blkg;
 
+	if (!blk_throtl_activated(q))
+		return;
+
 	spin_lock_irq(&q->queue_lock);
 	/*
 	 * queue_lock is held, rcu lock is not needed here technically.
@@ -1617,57 +1687,19 @@ out_unlock:
 	return throttled;
 }
 
-int blk_throtl_init(struct gendisk *disk)
-{
-	struct request_queue *q = disk->queue;
-	struct throtl_data *td;
-	int ret;
-
-	td = kzalloc_node(sizeof(*td), GFP_KERNEL, q->node);
-	if (!td)
-		return -ENOMEM;
-
-	INIT_WORK(&td->dispatch_work, blk_throtl_dispatch_work_fn);
-	throtl_service_queue_init(&td->service_queue);
-
-	q->td = td;
-	td->queue = q;
-
-	/* activate policy */
-	ret = blkcg_activate_policy(disk, &blkcg_policy_throtl);
-	if (ret)
-		kfree(td);
-	return ret;
-}
-
 void blk_throtl_exit(struct gendisk *disk)
 {
 	struct request_queue *q = disk->queue;
 
-	BUG_ON(!q->td);
+	if (!blk_throtl_activated(q))
+		return;
+
 	del_timer_sync(&q->td->service_queue.pending_timer);
 	throtl_shutdown_wq(q);
 	blkcg_deactivate_policy(disk, &blkcg_policy_throtl);
 	kfree(q->td);
 }
 
-void blk_throtl_register(struct gendisk *disk)
-{
-	struct request_queue *q = disk->queue;
-	struct throtl_data *td;
-
-	td = q->td;
-	BUG_ON(!td);
-
-	if (blk_queue_nonrot(q))
-		td->throtl_slice = DFL_THROTL_SLICE_SSD;
-	else
-		td->throtl_slice = DFL_THROTL_SLICE_HD;
-	td->track_bio_latency = !queue_is_mq(q);
-	if (!td->track_bio_latency)
-		blk_stat_enable_accounting(q);
-}
-
 static int __init throtl_init(void)
 {
 	kthrotld_workqueue = alloc_workqueue("kthrotld", WQ_MEM_RECLAIM, 0);
diff --git a/block/blk-throttle.h b/block/blk-throttle.h
index 32503fd83a84..393c3d134b96 100644
--- a/block/blk-throttle.h
+++ b/block/blk-throttle.h
@@ -150,23 +150,33 @@ static inline struct throtl_grp *blkg_to_tg(struct blkcg_gq *blkg)
  * Internal throttling interface
  */
 #ifndef CONFIG_BLK_DEV_THROTTLING
-static inline int blk_throtl_init(struct gendisk *disk) { return 0; }
 static inline void blk_throtl_exit(struct gendisk *disk) { }
-static inline void blk_throtl_register(struct gendisk *disk) { }
 static inline bool blk_throtl_bio(struct bio *bio) { return false; }
 static inline void blk_throtl_cancel_bios(struct gendisk *disk) { }
 #else /* CONFIG_BLK_DEV_THROTTLING */
-int blk_throtl_init(struct gendisk *disk);
 void blk_throtl_exit(struct gendisk *disk);
-void blk_throtl_register(struct gendisk *disk);
 bool __blk_throtl_bio(struct bio *bio);
 void blk_throtl_cancel_bios(struct gendisk *disk);
 
+static inline bool blk_throtl_activated(struct request_queue *q)
+{
+	return q->td != NULL;
+}
+
 static inline bool blk_should_throtl(struct bio *bio)
 {
-	struct throtl_grp *tg = blkg_to_tg(bio->bi_blkg);
+	struct throtl_grp *tg;
 	int rw = bio_data_dir(bio);
 
+	/*
+	 * This is called under bio_queue_enter(), and it's synchronized with
+	 * the activation of blk-throtl, which is protected by
+	 * blk_mq_freeze_queue().
+	 */
+	if (!blk_throtl_activated(bio->bi_bdev->bd_queue))
+		return false;
+
+	tg = blkg_to_tg(bio->bi_blkg);
 	if (!cgroup_subsys_on_dfl(io_cgrp_subsys)) {
 		if (!bio_flagged(bio, BIO_CGROUP_ACCT)) {
 			bio_set_flag(bio, BIO_CGROUP_ACCT);