The agency sought comment on whether unlicensed devices, like wireless home networks for Internet service, could operate on television broadcast airwaves in areas where they are not being used or at times when the spectrum lay fallow.

"Our goal in today's item is to allow for the more efficient and comprehensive use of the spectrum resource while not interfering with existing services," FCC Chairman Michael Powell said at the agency's monthly open meeting.

Airwaves for wireless services have become a hot -- but scarce -- commodity with the explosion of mobile telephones, two-way messaging pagers and home computer and entertainment networks, so consumers and companies have had to compete with the government for access to additional spectrum.

An FCC task force last month urged the agency to take steps to give users of the nation's airwaves more flexibility so they can adapt to new technologies and consumer demand. The panel also recommended that license holders of airwaves be able to lease spectrum they are not using.

The agency said that new technological advances have emerged that may make it possible for new unlicensed devices to work without interfering with television signals. A spokesman for the National Association of Broadcasters said the industry trade group would study the FCC concept.

The FCC on Wednesday also asked for comments on whether to allow unlicensed devices to be used in other frequencies, the 3650-3700 megahertz band.

Separately, the agency sought information on whether to change its policies to better promote wireless services in rural areas of the United States and if companies have the chance to acquire spectrum for such services.