Supporters of such a move say it would unleash new technologies that could dramatically reduce the cost and improve the performance of wireless communications, while making room for new breeds of services.
Some technologists argue that the airwave spectrum no longer needs to be thought of as a finite piece of real estate. But other groups, including cell-phone companies that have spent billions buying spectrum access, are urging caution.
At a hearing in Washington that was broadcast over the Internet on Thursday, a task force that has spent five months analyzing airwave spectrum policies made several recommendations that are meant to serve as a framework for sweeping changes FCC Chairman Michael Powell has said are needed.
For example, some bands on the airwave spectrum are used only in some places and during some parts of the day. The task force said new services might operate in those "white spaces" where and when an already-assigned portion of spectrum is going unused.
The group strongly endorsed the idea that new technology, such as software-based radios that can flexibly navigate the airwaves and filter out unwanted signals, will change traditional conceptions of interference and spectrum space. The FCC should develop new standards for the levels of interference radio receivers must tolerate, the task force said.
Overall, the group said it advocated "more flexible and market-oriented spectrum policies," and a shift away from the traditional FCC "command and control" system in which bits of the spectrum are auctioned and tight restrictions on their use are imposed.
"Increasing demand for spectrum-based services and devices are straining longstanding, and outmoded, spectrum policies," the task force said.
These recommendations have a way to go before becoming official policy.
The task force, headed by Paul Kolodzy, who formerly helped lead communications research for the military, issued only outlines of its findings Thursday, and its full report is not expected for at least a week.
After that, further hearings are scheduled in which the FCC will hammer out its new regulations.
But Powell and other FCC commissioners clearly support many concepts suggested by the task force. Powell said the task force's report "represents a chance to get ahead" of new wireless technologies that are becoming available.
"It's very exciting," said Mike Chartier, chairman of the regulatory committee for the Software Defined Radio Forum, and director of regulatory policy of Intel's wireless group. "I think Michael Powell has to be applauded for seeing the capabilities of technology."
A leading trade group for the cell phone industry, the Cellular Telecommunications and Internet Association, said it supports an overhaul of spectrum regulation because wireless carriers want more flexibility in how they use their expensive licenses.
But spokesman Travis Larson said the FCC must make sure any new policies adequately protect existing license holders from possible interference from new, unlicensed services.
"The details will really make or break the policy," he said. "If the FCC now changes the rules, we need to be able to guarantee consumers that devices they already own will continue to operate well."
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