diff --git a/webrtc/call/bitrate_allocator.cc b/webrtc/call/bitrate_allocator.cc
index 645ee3c..2c5ba6d 100644
--- a/webrtc/call/bitrate_allocator.cc
+++ b/webrtc/call/bitrate_allocator.cc
@@ -48,7 +48,7 @@
 BitrateAllocator::BitrateAllocator(LimitObserver* limit_observer)
     : limit_observer_(limit_observer),
       bitrate_observer_configs_(),
-      last_bitrate_bps_(kDefaultBitrateBps),
+      last_bitrate_bps_(0),
       last_non_zero_bitrate_bps_(kDefaultBitrateBps),
       last_fraction_loss_(0),
       last_rtt_(0),
diff --git a/webrtc/call/call.cc b/webrtc/call/call.cc
index baa8936..d2bc153 100644
--- a/webrtc/call/call.cc
+++ b/webrtc/call/call.cc
@@ -252,8 +252,8 @@
       call_stats_(new CallStats(clock_)),
       bitrate_allocator_(new BitrateAllocator(this)),
       config_(config),
-      audio_network_state_(kNetworkUp),
-      video_network_state_(kNetworkUp),
+      audio_network_state_(kNetworkDown),
+      video_network_state_(kNetworkDown),
       receive_crit_(RWLockWrapper::CreateRWLock()),
       send_crit_(RWLockWrapper::CreateRWLock()),
       event_log_(config.event_log),
@@ -284,6 +284,7 @@
   Trace::CreateTrace();
   call_stats_->RegisterStatsObserver(congestion_controller_.get());
 
+  congestion_controller_->SignalNetworkState(kNetworkDown);
   congestion_controller_->SetBweBitrates(
       config_.bitrate_config.min_bitrate_bps,
       config_.bitrate_config.start_bitrate_bps,