Mobile phone manufacturers do.
The little pictures of things like a dog or a slice of cake were popularised by Japanese mobile networks and don’t have any official translation or meaning.
Around 1,300 emojis have subsequently been adopted by the Unicode standard, and theoretically anyone can submit a proposal to unicode.org for a new one to be added.
But the review process takes about two years and there is no requirement for mobile phones to only use standard Unicode emojis.
Apple, for example, has their own set that are used on iPhones and these aren’t licensed to anyone else.
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