Yes, you can have changing fields without radiation.
I suggest looking at the electric and magnetic fields derived from the L-W equation, which gives different insights from Maxwell's equations.
Here is one sample derivation.
The electric field of a point charge moving at a constant velocity $v$, as derived from the Liénard-Wiechert equation, reads
$$ E = \frac{q}{4\pi\epsilon_0} \frac{(1-\beta^2)}{(1-n\cdot\beta)^3}\frac{n-\beta}{|r-r_s|^2},$$
where $r$ is the location of the stationary target when the force is applied
$r_s$ is the location of the source when the force leaves it
$ n =\overline{r-r_s}$ and
$ \beta = v/c $.
The rest of the electric force equation depends on acceleration, and that part is considered radiation. This part will change when $v \not= 0$.
This force is correct in a frame where the target does not move.
If we choose a frame where source and target both move in a direction unaligned with $r-r_s$, the electric force equation fails, and the magnetic force equation then provides a fudge factor which corrects the error.
I want to point out that the electric and magnetic fields do not create each other. A moving electric charge creates both of them. The electric charge is the creator, and the fields do not affect each other after they are created.
"But are not all changing magnetic or electric fields EM waves?"
No, not all. First, charges that move without acceleration can create electric fields that change but that do not include radiation.
Second, not all radiation is waves as we usually think of them. Apparently any acceleration of a charge creates radiation. You get a wave if the radiation travels in a periodic way.
So if a charge travels up and down in a sine wave, it creates a linearly-polarized wave, polarized up-down. A radio tower does this. Directly above the radio tower the signal is minimized.
If a charge travels in a circle, then if you stand edge-on to the circle the radiation is linearly polarized perpendicular to the axis of rotation. Along the axis there is a wave that is circularly polarized. In between there are combinations of both and the sum is elliptically polarized.
If a charge travels in some erratic pattern it doesn't exactly make a wave. But you can make a fourier transform to convert whatever it does into some combination of sine waves. In that sense, any charge motion whatsoever is a wave of some sort.