For the last year, Tom Wheeler, chairman of the Federal Communications Commission, has been working on new rules to ensure so-called net neutrality, or an open Internet. Over that time, his hints and comments have shown a steady shift toward stronger regulation — and a more direct confrontation with the cable television and telecommunications companies that provide high-speed Internet service to most American homes.

But on Wednesday, Mr. Wheeler went further than some industry analysts had expected and even beyond the recommendations of President Obama, who in November urged the commission to adopt the “strongest possible rules,” in a surprising public admonition to an independent agency.

First, Mr. Wheeler proposed regulating consumer Internet service as a public utility, saying it was the right path to net neutrality. He also included provisions to protect consumer privacy and to ensure Internet service is available for people with disabilities and in remote areas.

Mr. Wheeler’s plan would also for the first time give the F.C.C. enforcement powers to police practices in the marketplace for handling of data before it enters the gateway network into people’s households — the so-called interconnect market. For good measure, he added a “future conduct” standard to cover unforeseen problems.