False cell tower are now spreading. These can be used to track cell phones. This technology is not limited to governmental agencies.
http://www.myfoxchicago.com/story/26464821/spying-cellphone-tower-found-in-chicago-other-us-cities
http://rt.com/usa/189116-washington-dc-spying-phone/
Stingray is an example of a mobile electronic cell phone tracking device used to find cell phones without placing software on cell phones. See link below