When Maxwell was in the process of trying to undrerstand electromagnetism he came to hypothesize a capacity of empty space that he named 'displacement current'.
At the time the existence of atoms was expected, on the basis of circumstantial evidence; the technology of the time did not yet provide the means for direct confirmation.
It was also expected that matter can exist in the form of ions. (But it was not known whether of the two forms of charge, positive and negative, both were mobile, or only one of them.)
The capacity of a capacitor is dependent on the composition of the dielectric medium. Maxwell offered the hypothesis that some forms of dielectric medium have ions among their constituent parts, and that these ions can be displaced.
When a capacitor is charged up there is a buildup of electric field between the plates. This electric field displaces ions. This displacement offsets the electric field between the plates. This allows the capacitor to store more charge per unit of voltage.
In Maxwell's time the experimentors could already create very good vacuum, so they could also measure the dielectric properties of vacuum.
Most intrigingly, the dielectric property of empty space is such that you have to conclude that something physical is happening. The effect is small, but measurable.
Maxwell considered that if the Luminiferous Aether consists to some extent of electric charge, then it too can support displacement current.
This would allow propagation of electromagnetic waves.
Further reading:
Maxwell's displacement (From Kevin Brown's website mathpages . com)
James Clerk Maxwell:
Wikisource:
On physical lines of force 1861
(This essay 'On physical lines of force' preceded the larger work 'A treatise on electricity and magnetism' by quite a few years. The 'treatise' was published in 1873.
To avoid misunderstanding:
Maxwell wasn't necessarilty committed to his 1861 model of the Luminiferous Aether.
The mechanical model was not featured in the 'Treatise'.
Whatever the case, the existence of propagating electromagnetic ways, that keep propagating when the original source has ceased emitting, strongly suggests that the electromagnetic field has an existence of its own.