A base station may establish a wireless connection with a mobile device. The base station may determine an index value for each of a plurality of carriers that may be used for the wireless connection. The index value for a respective carrier may be determined based on a quantity of idle mode devices using the respective carrier in an idle mode. The base station may generate a carrier order that indicates a priority for each of the plurality of frequencies. The carrier order may be generated based on sorting the plurality of carriers based on the index values for the plurality of carriers. The base station may send order information indicating the carrier order to the mobile device via the wireless connection.