In Minnesota to help usher in the Vikings' new $1.1 billion stadium, Goodell said the league and fans shouldn't be so quick to react regarding a possible Raiders move to Nevada.
The commissioner cited what took place in Minneapolis as the Metrodome was replaced by U.S. Bank Stadium, but not without a struggle.
"There's still a lot that has to happen before we would get to that stage," Goodell said of the Raiders move. "Recognizing that they came out of committee with a bill, but there's still a lot of work to be done to improve that recommendation."
He added: "No market should lose their team once let alone twice. I believe there's a solution in Oakland."
The Raiders left Oakland for Los Angeles in 1982 before returning north in 1985. Goodell didn't mention one city that recently lost the NFL for a second time -- St. Louis, which has had the Cardinals and the Rams depart.
A Southern Nevada tourism panel last week unanimously recommended a $1.9 billion financing plan for a stadium just off the Strip. Davis has said that if a financing plan were in place, he would move the team out of Oakland.
"If Las Vegas comes through with what we've been talking about, I'm going to fight like hell to be there," Davis told the Las Vegas Review-Journal.
Even John Mara of the New York Giants, who at one time was critical of the move, is now approaching the possibility with an open mind.