CEIR: Safeguarding the Economy and Public Safety through Mobile Device Control
15 december 2025
Despite regulatory efforts, the number of illegal mobile devices on the market continues to grow. In 2023, customs authorities around the world detected 50% more counterfeit devices than in the previous year. These devices bypass certification and import duties, leading to lost tax revenue and creating risks to both the economy and national security.
Curbing the spread of gray-market devices requires a comprehensive, end-to-end approach—from importation through to everyday use. At the center of this strategy is the Central Equipment Identity Register (CEIR), a system that brings together data from all market stakeholders, ensures transparency in device circulation, and gives governments a powerful tool to fight illegal imports.
The IMEI is a 15-digit number that uniquely identifies a mobile device when it connects to a network
Basic CEIR Workflow
1. Creating IMEI whitelists—databases of certified, officially registered devices.
1.1. Manufacturers, importers, and individual consumers register new devices in CEIR and pay the applicable taxes and fees.
1.2. Government regulators create white VIP lists and upload them to the CEIR system.
2. Creating IMEI blacklists—databases of stolen, smuggled, counterfeit, or uncertified devices.
2.1. Government authorities compile blacklists and upload them to CEIR.
2.2. CEIR also automatically blacklists any devices that are not registered within the designated timeframe.
3. Sending the finalized lists from CEIR to each mobile operator’s Equipment Identity Register (EIR).
3.1. IMEI Request. When a subscriber connects to the network, the switch queries the device’s IMEI and sends it to the EIR. This request can also be triggered when the subscriber moves between base stations or automatically at scheduled intervals.
3.2. IMEI Verification. The EIR checks the device’s IMEI—or the IMEI-IMSI pair—against the lists provided by CEIR.
3.3. Access to the Mobile Network. The EIR either approves or blocks network access based on which list the IMEI appears on—white or black. If the IMEI is not found on any list, the EIR permits registration but forwards the IMEI to CEIR for inclusion in the Gray List, a temporary registry for new devices awaiting verification.
CEIR does not interact directly with mobile devices or collect user data. Its role is to create and maintain up-to-date versions of all list types, which are used by mobile operators’ EIR systems to control device access to the network.
The CEIR system ensures transparency and security across the entire national telecom infrastructure, helping to mitigate the risks associated with unauthorized device usage.
Roles of CEIR System Participants
CEIR consolidates mobile device data from subscribers, mobile operators’ EIRs, customs authorities, and manufacturers, ensuring transparency and security across the market
- Decreased government revenue
- Slower economic growth, as legitimate businesses struggle to compete with fraudulent sellers on price
- Increased consumer complaints about mobile service quality, as counterfeit devices often deliver poor performance
- Greater risk of spam attacks and personal data loss for contract phone users, due to preinstalled malware on counterfeit devices
CEIR helps address the challenges of counterfeiting and smuggling. The centralized registry provides end-to-end control over device movement—from the point of import or manufacturing to network activation:
- Importers register devices and pay the required duties. CEIR receives data from customs authorities on the number of imported devices and the corresponding duties paid. If there is a discrepancy or a device is missing from official records, CEIR alerts the operator to block the IMEI.
- Manufacturers register and certify phones before they reach the market. This enables regulators to track which devices are being sold, through which channels, and whether they meet required quality standards.
Blocking counterfeit and smuggled devices helps shrink the gray market, protect consumers, and promote fair competition.
Implementing CEIR streamlines internal processes and leads to a noticeable decline in gray imports. As illegal devices are removed from circulation, the share of untaxed products sold at artificially low prices decreases. This levels the playing field, making it easier for local manufacturers to compete. In turn, it encourages investment in domestic production, expands device offerings, and creates new jobs.
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In Pakistan, the introduction of a device identification and blocking system spurred the growth of local manufacturing, leading to the creation of 50,000 jobs (GSMA)
The system supports flexible pricing, allowing fees to be set based on device type, brand, or owner category (corporate or individual). This approach ensures transparent administration and gives regulators the ability to adapt to changing economic conditions.
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In EW CEIR, multiple parameters can be combined to determine the registration fee for devices
In addition to enhancing tax collection, automatic IMEI verification streamlines process administration:
- Reduces the burden on government agencies: automatic IMEI verification eliminates manual application processing and document checks. Staff no longer need to cross-reference multiple registries, speeding up operations and saving resources.
- Reduces registration time: the system instantly verifies the IMEI and confirms that the device meets established requirements, accelerating the entire process.
- Reduces the risk of errors and fraud: by eliminating manual operations, the likelihood of incorrect data entry or overlooked discrepancies is minimized. Automatic IMEI verification allows for faster detection of counterfeit devices, clones, and attempts to bypass regulations, strengthening market security.
Thanks to process transparency and flexible pricing tools, the government can boost revenue collection, reinforcing the foundation for economic development.
- Prevents illegal devices from registering on the network, reducing opportunities for criminal exploitation.
- Enables authorities to map connections within criminal networks by analyzing which IMEI-IMSI pairs move together, even if the devices are not actively used for calls or internet access.
- Links devices to personal IDs, associating them with individual users. This allows stolen devices to be blocked at the owner’s request.
- Provides data on subscriber locations and movements, supporting disaster alerts, heat mapping, and targeted restrictions on mobile access during emergencies or at sensitive sites.
These capabilities allow governments to selectively block IMEIs to combat crime, terrorism, and other security threats.
The Eastwind CEIR platform is developed and deployed in line with the requirements of regulators and telecom operators. It complies with GSMA international standards and can be tailored to the legislative, technical, and organizational needs of each country.
Learn more about EW CEIR
More News
Curbing the spread of gray-market devices requires a comprehensive, end-to-end approach—from importation through to everyday use. At the center of this strategy is the Central Equipment Identity Register (CEIR), a system that brings together data from all market stakeholders, ensures transparency in device circulation, and gives governments a powerful tool to fight illegal imports.
What Is CEIR and How Does It Work
CEIR is a national-level system that registers mobile devices using their unique IMEI (International Mobile Equipment Identity) number. It allows governments to track and verify devices as they connect to mobile networks, helping to identify unauthorized or illegal devices in real time.The IMEI is a 15-digit number that uniquely identifies a mobile device when it connects to a network
Basic CEIR Workflow
1. Creating IMEI whitelists—databases of certified, officially registered devices.
1.1. Manufacturers, importers, and individual consumers register new devices in CEIR and pay the applicable taxes and fees.
1.2. Government regulators create white VIP lists and upload them to the CEIR system.
2. Creating IMEI blacklists—databases of stolen, smuggled, counterfeit, or uncertified devices.
2.1. Government authorities compile blacklists and upload them to CEIR.
2.2. CEIR also automatically blacklists any devices that are not registered within the designated timeframe.
3. Sending the finalized lists from CEIR to each mobile operator’s Equipment Identity Register (EIR).
3.1. IMEI Request. When a subscriber connects to the network, the switch queries the device’s IMEI and sends it to the EIR. This request can also be triggered when the subscriber moves between base stations or automatically at scheduled intervals.
3.2. IMEI Verification. The EIR checks the device’s IMEI—or the IMEI-IMSI pair—against the lists provided by CEIR.
3.3. Access to the Mobile Network. The EIR either approves or blocks network access based on which list the IMEI appears on—white or black. If the IMEI is not found on any list, the EIR permits registration but forwards the IMEI to CEIR for inclusion in the Gray List, a temporary registry for new devices awaiting verification.
CEIR does not interact directly with mobile devices or collect user data. Its role is to create and maintain up-to-date versions of all list types, which are used by mobile operators’ EIR systems to control device access to the network.
The CEIR system ensures transparency and security across the entire national telecom infrastructure, helping to mitigate the risks associated with unauthorized device usage.
Roles of CEIR System Participants
| Who Participates | What Each Participant Does | What Each Participant Receives |
| Government Regulators |
|
Analytical reports that support regulatory decision-making on device certification procedures, tariffs, and circulation policies. |
| Manufacturers and Importers |
|
A level playing field that promotes fair competition and boosts sales of legally imported and certified devices. |
| Mobile Operators |
|
Fewer subscriber complaints related to poor connectivity and spam, which are often caused by preinstalled malware on illegal devices. |
| Consumers |
|
Confidence in the authenticity and safety of purchased devices, along with added protection against theft. |
CEIR consolidates mobile device data from subscribers, mobile operators’ EIRs, customs authorities, and manufacturers, ensuring transparency and security across the market
Why Regulators Need CEIR
The number of mobile devices is growing rapidly, with manufacturers releasing over 10,000 new models each year. This surge makes it increasingly challenging for governments to monitor the market and ensure transparency. CEIR provides a comprehensive solution—helping to eliminate illegal products from circulation and protect the country from both internal and external security threats.EW CEIR enables governments to manage the mobile device market while supporting both security and economic development objectives. The system is compatible with EIRs from any vendor and can be integrated with government platforms and payment systems.
Learn more about the solution's capabilities
Combating Counterfeiting and Smuggling
Dishonest sellers evade duties and taxes on counterfeit or illegally imported phones, enabling them to offer lower prices. Although these prices may appeal to consumers, they come with serious negative consequences for the state:- Decreased government revenue
- Slower economic growth, as legitimate businesses struggle to compete with fraudulent sellers on price
- Increased consumer complaints about mobile service quality, as counterfeit devices often deliver poor performance
- Greater risk of spam attacks and personal data loss for contract phone users, due to preinstalled malware on counterfeit devices
CEIR helps address the challenges of counterfeiting and smuggling. The centralized registry provides end-to-end control over device movement—from the point of import or manufacturing to network activation:
- Importers register devices and pay the required duties. CEIR receives data from customs authorities on the number of imported devices and the corresponding duties paid. If there is a discrepancy or a device is missing from official records, CEIR alerts the operator to block the IMEI.
- Manufacturers register and certify phones before they reach the market. This enables regulators to track which devices are being sold, through which channels, and whether they meet required quality standards.
Blocking counterfeit and smuggled devices helps shrink the gray market, protect consumers, and promote fair competition.
Implementing CEIR streamlines internal processes and leads to a noticeable decline in gray imports. As illegal devices are removed from circulation, the share of untaxed products sold at artificially low prices decreases. This levels the playing field, making it easier for local manufacturers to compete. In turn, it encourages investment in domestic production, expands device offerings, and creates new jobs.
In Pakistan, the introduction of a device identification and blocking system spurred the growth of local manufacturing, leading to the creation of 50,000 jobs (GSMA)
Increasing Government Revenue
In addition to collecting customs duties, CEIR helps generate additional revenue through device registration fees.The system supports flexible pricing, allowing fees to be set based on device type, brand, or owner category (corporate or individual). This approach ensures transparent administration and gives regulators the ability to adapt to changing economic conditions.
In EW CEIR, multiple parameters can be combined to determine the registration fee for devices
In addition to enhancing tax collection, automatic IMEI verification streamlines process administration:
- Reduces the burden on government agencies: automatic IMEI verification eliminates manual application processing and document checks. Staff no longer need to cross-reference multiple registries, speeding up operations and saving resources.
- Reduces registration time: the system instantly verifies the IMEI and confirms that the device meets established requirements, accelerating the entire process.
- Reduces the risk of errors and fraud: by eliminating manual operations, the likelihood of incorrect data entry or overlooked discrepancies is minimized. Automatic IMEI verification allows for faster detection of counterfeit devices, clones, and attempts to bypass regulations, strengthening market security.
Thanks to process transparency and flexible pricing tools, the government can boost revenue collection, reinforcing the foundation for economic development.
Ensuring Security and Digital Sovereignty
The CEIR system helps safeguard a country’s information and national security:- Prevents illegal devices from registering on the network, reducing opportunities for criminal exploitation.
- Enables authorities to map connections within criminal networks by analyzing which IMEI-IMSI pairs move together, even if the devices are not actively used for calls or internet access.
- Links devices to personal IDs, associating them with individual users. This allows stolen devices to be blocked at the owner’s request.
- Provides data on subscriber locations and movements, supporting disaster alerts, heat mapping, and targeted restrictions on mobile access during emergencies or at sensitive sites.
These capabilities allow governments to selectively block IMEIs to combat crime, terrorism, and other security threats.
CEIR: A Tool for Market Transparency and Digital Sovereignty
CEIR facilitates synchronized information exchange between regulators, manufacturers, and customs authorities, reinforcing a country’s economic stability and security. The solution helps build a connected ecosystem and monitor the entire lifecycle of mobile devices—from market release to disposal. Internationally, it strengthens the country’s reputation as a safe and technologically advanced partner.The Eastwind CEIR platform is developed and deployed in line with the requirements of regulators and telecom operators. It complies with GSMA international standards and can be tailored to the legislative, technical, and organizational needs of each country.
Learn more about EW CEIR