Goodell noted, though, that the pace of games could also be a factor in the ratings decline. Fans have complained for years that games are too long, and they frequently express annoyance at the number of commercial breaks and video reviews. Last season, the average length of regular-season games, from kickoff to final whistle, was 3 hours 8 minutes, six minutes longer than in 2008.

Goodell said the league was considering a number of potential solutions to improve the pace of games, including running fewer advertisements and changing when they run. The league is also looking at ways to speed up video reviews by its officials as well as the time it takes referees to announce penalties on the field.

“We want to take as much what we call dead time, non-action out of the game, so that we can make the game more exciting,” Goodell said.

The league has expanded the number of games it plays on Thursday nights and overseas, leading some to speculate that the N.F.L. may be reducing interest in the game. Goodell said he was mindful of that possibility.

“Every game counts, so that makes our inventory incredibly valuable,” he said, adding that the league has to be careful not to saturate the market.