There were several reasons for this dissonance. Most governments issued 1G, 2G and 3G licences separately. network operators would wait until the government issued the licence to established their operating systems, followed by manufacturers introducing a new model to meet operators' needs. Additionally, 3G models had to altered model by model and operator bby operator. Manufacturers were unwilling to undertake small oeders of customized phones for each operator in each market. To gain the benefits of scale, they would wait to identify the operators who would attract enough sucscribers.