An eNodeB can establish s1 setup with multiple MMEs of same the MMEs pool area. In the pool, all the MMEs may not have same capacity due to hardware or software limitation. So a relative value is assigned to each MME of pool and at the time of S1-setup response, it is communicated to eNodeb .
While making S1-connection for an UE, eNodeB considers these relative capacity and forwards the initial UE message to appropriate MME , in case of unavailability registered MME info or S-TMSI or both from UE.