In 1928, the Federal Radio Commission (the precursor of the Federal Communications Commission--FCC) noted the need for special radio channels that could carry radio across the United States free from interference from other radio stations. Many of these "clear channels" still exist as protected entities. Perhaps no other FCC policy better reflects the potential roles, problems, and inequities of broadcast regulation than does its clear channel policy. Perhaps, too, that is why this policy continues to be under constant review and appeal and why it has been modified significantly. Since the policy decisions surrounding the granting of clear channels encompass the values and problems of regulation in general, a review of the evolution of the FCC's clear channel rules provides an interesting and useful look at that body's behavior in allocating scarce and special resources over a long period of time during which the conditions justifying the policy changed dramatically. Such a review shows many instances of lack of clarity of purpose and decisiveness on the part of the FCC. Ironically, the slowness with which it has dealt with clear channels has allowed the Commission to respond to new technologies, changes in population density, and changes in social concerns. The review suggests that in spite of problems, the regulatory system is working. (FL)