diff --git a/pkg/kv/kvserver/client_atomic_membership_change_test.go b/pkg/kv/kvserver/client_atomic_membership_change_test.go
index 6410ec78ef3f..ba0ce5bc6700 100644
--- a/pkg/kv/kvserver/client_atomic_membership_change_test.go
+++ b/pkg/kv/kvserver/client_atomic_membership_change_test.go
@@ -89,7 +89,7 @@ func TestAtomicReplicationChange(t *testing.T) {
 				// a hair earlier.
 				cfg := quorum.MakeEmptyConfig()
 				cfg, _, err = confchange.Restore(confchange.Changer{
-					ProgressMap:      tracker.MakeProgressTracker(&cfg).Progress,
+					ProgressMap:      tracker.MakeEmptyProgressMap(),
 					Config:           cfg,
 					MaxInflight:      1,
 					MaxInflightBytes: 0,
diff --git a/pkg/raft/confchange/datadriven_test.go b/pkg/raft/confchange/datadriven_test.go
index 9bf2cd0d151a..2aeef89f6200 100644
--- a/pkg/raft/confchange/datadriven_test.go
+++ b/pkg/raft/confchange/datadriven_test.go
@@ -32,10 +32,9 @@ import (
 
 func TestConfChangeDataDriven(t *testing.T) {
 	datadriven.Walk(t, "testdata", func(t *testing.T, path string) {
-		cfg := quorum.MakeEmptyConfig()
 		c := Changer{
-			Config:           cfg,
-			ProgressMap:      tracker.MakeProgressTracker(&cfg).Progress,
+			Config:           quorum.MakeEmptyConfig(),
+			ProgressMap:      tracker.MakeEmptyProgressMap(),
 			MaxInflight:      10,
 			MaxInflightBytes: 0,
 			LastIndex:        0, // incremented in this test with each cmd
diff --git a/pkg/raft/confchange/quick_test.go b/pkg/raft/confchange/quick_test.go
index 72ca0b4aea28..30e0ea496dbc 100644
--- a/pkg/raft/confchange/quick_test.go
+++ b/pkg/raft/confchange/quick_test.go
@@ -93,10 +93,9 @@ func TestConfChangeQuick(t *testing.T) {
 
 	wrapper := func(invoke testFunc) func(setup initialChanges, ccs confChanges) (*Changer, error) {
 		return func(setup initialChanges, ccs confChanges) (*Changer, error) {
-			cfg := quorum.MakeEmptyConfig()
 			c := &Changer{
-				Config:           cfg,
-				ProgressMap:      tracker.MakeProgressTracker(&cfg).Progress,
+				Config:           quorum.MakeEmptyConfig(),
+				ProgressMap:      tracker.MakeEmptyProgressMap(),
 				MaxInflight:      10,
 				MaxInflightBytes: 0,
 				LastIndex:        10,
diff --git a/pkg/raft/confchange/restore_test.go b/pkg/raft/confchange/restore_test.go
index 58e4dbc30ceb..0114a787867d 100644
--- a/pkg/raft/confchange/restore_test.go
+++ b/pkg/raft/confchange/restore_test.go
@@ -89,10 +89,9 @@ func TestRestore(t *testing.T) {
 	cfg := quick.Config{MaxCount: 1000}
 
 	f := func(cs pb.ConfState) bool {
-		cfg := quorum.MakeEmptyConfig()
 		chg := Changer{
-			Config:      cfg,
-			ProgressMap: tracker.MakeProgressTracker(&cfg).Progress,
+			Config:      quorum.MakeEmptyConfig(),
+			ProgressMap: tracker.MakeEmptyProgressMap(),
 			LastIndex:   10,
 		}
 		cfg, progressMap, err := Restore(chg, cs)
diff --git a/pkg/raft/raft.go b/pkg/raft/raft.go
index 348c8ba1311c..bf6555177b41 100644
--- a/pkg/raft/raft.go
+++ b/pkg/raft/raft.go
@@ -420,7 +420,6 @@ func newRaft(c *Config) *raft {
 		raftLog:                     raftlog,
 		maxMsgSize:                  entryEncodingSize(c.MaxSizePerMsg),
 		maxUncommittedSize:          entryPayloadSize(c.MaxUncommittedEntriesSize),
-		config:                      quorum.MakeEmptyConfig(),
 		electionTimeout:             c.ElectionTick,
 		heartbeatTimeout:            c.HeartbeatTick,
 		logger:                      c.Logger,
@@ -435,11 +434,9 @@ func newRaft(c *Config) *raft {
 	}
 	lastID := r.raftLog.lastEntryID()
 
-	r.trk = tracker.MakeProgressTracker(&r.config)
-
-	cfg, trk, err := confchange.Restore(confchange.Changer{
-		Config:           r.config,
-		ProgressMap:      r.trk.Progress,
+	cfg, progressMap, err := confchange.Restore(confchange.Changer{
+		Config:           quorum.MakeEmptyConfig(),
+		ProgressMap:      tracker.MakeEmptyProgressMap(),
 		MaxInflight:      r.maxInflight,
 		MaxInflightBytes: r.maxInflightBytes,
 		LastIndex:        lastID.index,
@@ -447,7 +444,7 @@ func newRaft(c *Config) *raft {
 	if err != nil {
 		panic(err)
 	}
-	assertConfStatesEquivalent(r.logger, cs, r.switchToConfig(cfg, trk))
+	assertConfStatesEquivalent(r.logger, cs, r.switchToConfig(cfg, progressMap))
 
 	if !IsEmptyHardState(hs) {
 		r.loadState(hs)
@@ -1908,12 +1905,10 @@ func (r *raft) restore(s snapshot) bool {
 		return false
 	}
 
-	// Reset the configuration and add the (potentially updated) peers in anew.
-	r.config = quorum.MakeEmptyConfig()
-	r.trk = tracker.MakeProgressTracker(&r.config)
-	cfg, trk, err := confchange.Restore(confchange.Changer{
-		Config:           r.config,
-		ProgressMap:      r.trk.Progress,
+	cfg, progressMap, err := confchange.Restore(confchange.Changer{
+		// Reset the configuration and add the (potentially updated) peers in anew.
+		Config:           quorum.MakeEmptyConfig(),
+		ProgressMap:      tracker.MakeEmptyProgressMap(), // empty ProgressMap to go with our empty config
 		MaxInflight:      r.maxInflight,
 		MaxInflightBytes: r.maxInflightBytes,
 		LastIndex:        r.raftLog.lastIndex(),
@@ -1925,7 +1920,7 @@ func (r *raft) restore(s snapshot) bool {
 		panic(fmt.Sprintf("unable to restore config %+v: %s", cs, err))
 	}
 
-	assertConfStatesEquivalent(r.logger, cs, r.switchToConfig(cfg, trk))
+	assertConfStatesEquivalent(r.logger, cs, r.switchToConfig(cfg, progressMap))
 
 	last := r.raftLog.lastEntryID()
 	r.logger.Infof("%x [commit: %d, lastindex: %d, lastterm: %d] restored snapshot [index: %d, term: %d]",
@@ -1941,7 +1936,7 @@ func (r *raft) promotable() bool {
 }
 
 func (r *raft) applyConfChange(cc pb.ConfChangeV2) pb.ConfState {
-	cfg, trk, err := func() (quorum.Config, tracker.ProgressMap, error) {
+	cfg, progressMap, err := func() (quorum.Config, tracker.ProgressMap, error) {
 		changer := confchange.Changer{
 			Config:           r.config,
 			ProgressMap:      r.trk.Progress,
@@ -1962,7 +1957,7 @@ func (r *raft) applyConfChange(cc pb.ConfChangeV2) pb.ConfState {
 		panic(err)
 	}
 
-	return r.switchToConfig(cfg, trk)
+	return r.switchToConfig(cfg, progressMap)
 }
 
 // switchToConfig reconfigures this node to use the provided configuration. It
@@ -1971,9 +1966,9 @@ func (r *raft) applyConfChange(cc pb.ConfChangeV2) pb.ConfState {
 // requirements.
 //
 // The inputs usually result from restoring a ConfState or applying a ConfChange.
-func (r *raft) switchToConfig(cfg quorum.Config, trk tracker.ProgressMap) pb.ConfState {
+func (r *raft) switchToConfig(cfg quorum.Config, progressMap tracker.ProgressMap) pb.ConfState {
 	r.config = cfg
-	r.trk.Progress = trk
+	r.trk = tracker.MakeProgressTracker(&r.config, progressMap)
 
 	r.logger.Infof("%x switched to configuration %s", r.id, r.config)
 	cs := r.config.ConfState()
diff --git a/pkg/raft/raft_test.go b/pkg/raft/raft_test.go
index f1ab34cc93bd..b4e30cf718f8 100644
--- a/pkg/raft/raft_test.go
+++ b/pkg/raft/raft_test.go
@@ -3750,7 +3750,7 @@ func newNetworkWithConfig(configFunc func(*Config), peers ...stateMachine) *netw
 				learners[i] = true
 			}
 			v.id = id
-			v.trk = tracker.MakeProgressTracker(&v.config)
+			v.trk = tracker.MakeProgressTracker(&v.config, tracker.MakeEmptyProgressMap())
 			if len(learners) > 0 {
 				v.config.Learners = map[pb.PeerID]struct{}{}
 			}
diff --git a/pkg/raft/tracker/progress.go b/pkg/raft/tracker/progress.go
index 0d35738d8ce8..bb0c896789ca 100644
--- a/pkg/raft/tracker/progress.go
+++ b/pkg/raft/tracker/progress.go
@@ -356,6 +356,11 @@ func (pr *Progress) String() string {
 // ProgressMap is a map of *Progress.
 type ProgressMap map[pb.PeerID]*Progress
 
+// MakeEmptyProgressMap constructs and returns an empty ProgressMap.
+func MakeEmptyProgressMap() ProgressMap {
+	return make(ProgressMap)
+}
+
 // String prints the ProgressMap in sorted key order, one Progress per line.
 func (m ProgressMap) String() string {
 	ids := make([]pb.PeerID, 0, len(m))
diff --git a/pkg/raft/tracker/tracker.go b/pkg/raft/tracker/tracker.go
index 4393e65a2f06..f21e769fbd5f 100644
--- a/pkg/raft/tracker/tracker.go
+++ b/pkg/raft/tracker/tracker.go
@@ -37,11 +37,11 @@ type ProgressTracker struct {
 }
 
 // MakeProgressTracker initializes a ProgressTracker.
-func MakeProgressTracker(config *quorum.Config) ProgressTracker {
+func MakeProgressTracker(config *quorum.Config, progressMap ProgressMap) ProgressTracker {
 	p := ProgressTracker{
 		Config:   config,
+		Progress: progressMap,
 		Votes:    map[pb.PeerID]bool{},
-		Progress: map[pb.PeerID]*Progress{},
 	}
 	return p
 }
diff --git a/pkg/roachpb/metadata_replicas_test.go b/pkg/roachpb/metadata_replicas_test.go
index 2a950629fe7d..479766fcbf3b 100644
--- a/pkg/roachpb/metadata_replicas_test.go
+++ b/pkg/roachpb/metadata_replicas_test.go
@@ -337,11 +337,10 @@ func TestReplicaDescriptorsCanMakeProgressRandom(t *testing.T) {
 		})
 
 		raftCanMakeProgress, skip := func() (res bool, skip bool) {
-			emptyCfg := quorum.MakeEmptyConfig()
 			cfg, _, err := confchange.Restore(
 				confchange.Changer{
-					Config:           emptyCfg,
-					ProgressMap:      tracker.MakeProgressTracker(&emptyCfg).Progress,
+					Config:           quorum.MakeEmptyConfig(),
+					ProgressMap:      tracker.MakeEmptyProgressMap(),
 					MaxInflight:      1,
 					MaxInflightBytes: 0,
 				},