Intelligent initial provisioning for UE with one or more than one subscriber identity modules (SIMs) is disclosed. Intelligent initial provisioning is the selection and provisioning of subscribers on a network from among multiple
mobile network operator (MNO) networks using a respective SIM. In other words, intelligent initial provisioning pertains to selecting the home network of the UE. The intelligent initial provisioning may take into account criteria such as the home location of the UE, the capabilities of the UE, phone number eligibility, the average
signal strength of the MNO networks in the area, the typical congestion on the MNO networks, the number or percentage of subscribers of the initial provisioning entity that are on the MNO networks, cost criteria, subscription criteria, MNO contract criteria, highest
service quality, lowest voice and SMS service cost, etc. Forecasts of future traffic on the MNO networks may also factor into the intelligent initial provisioning.