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Universidade Autónoma de Lisboa

e-ISSN: 1647-7251

VOL. 16, Nº. 1, TD1

Thematic Dossier – Internationalization of Higher Education:

Experiences and Challenges

June 2025

149

INTERNATIONALIZATION OF HIGHER EDUCATION AND PUBLIC POLICY:

ADVANCES AND SETBACKS IN THE STRATEGIC ACTIONS FOR THE

INTERNATIONAL INTEGRATION OF BRAZILIAN UNIVERSITIES

JOSÉ ALBERTO MIRANDA

jose.miranda@unilasalle.edu.br

He holds a degree in Law from the University of Vale do Rio dos Sinos (1996), a Specialization in

Integration and Mercosur from UFRGS (1999), a Master's degree in International Relations from

the Federal University of Rio Grande do Sul (2004) and a PhD in International Strategic Studies

from UFRGS (2012). He is currently Advisor for Interinstitutional and International Affairs,

Deputy Coordinator of the Postgraduate Program in Law and a member of the teaching staff of

the International Relations Course at La Salle University (Brazil). He is also a distinguished

visiting professor at the Catholic University of Trujillo in Peru. He has experience in International

Relations and International Law, with an emphasis on International Society, International

Cooperation, Global Governance, Regional Integration, Foreign Policy and International

Education. He also coordinates the La Salle University support for immigrants extension project.

JACKSON LUIZ NUNES BENTES

jackson.bentes@lasalle.org.br

Postdoctoral student in International Relations at the Autónoma University of Lisbon (UAL),

Portugal. Post-Doctorate in History from the State University of Rio de Janeiro (2018). PhD in

Education, Art and History of Culture from Mackenzie Presbyterian University (2014). Master's in

Psychology from the Catholic University of Brasília (2008). Graduated in Philosophy (BA and BSc)

from La Salle University in Canoas, RS (2001). General Director of La Salle College/Manaus.

Director of La Salle Educational Center (Brazil). Professor of “Ethics”, “Education” and

“Philosophy” at UNILASALLE/Lucas. Member of the Research Group at La Salle University-

Canoas/RS. Has experience in Philosophy, working mainly on the following subjects: Philosophy,

Ethics and Philosophy of Education, History of Education. BASis evaluator.

Abstract

The establishment of a comprehensive national public policy for the internationalization of

higher education in Brazil has been identified as an urgent and indispensable priority. Brazil

continues to face challenges in its strategic planning aimed at enhancing international

integration within the higher education sector, particularly in effectively promoting its

universities on the global stage. This study seeks to underscore the significance of

implementing a national internationalization policy tailored to Brazilian universities, grounded

in a thorough understanding of the current dynamics and characteristics of the

internationalization process in the country. To achieve this objective, the study first examines

the organizational structures of key government agencies, along with their respective

initiatives and programs related to internationalization. Subsequently, these elements are

critically analyzed in relation to the internationalization management processes at Higher

Education Institutions (HEIs), weighing their advantages and disadvantages. Through this

analysis, the study identifies the principal challenges confronting the development of a

cohesive national policy for internationalization. Methodologically, this research employs a

qualitative approach, utilizing bibliographic and documentary analysis. The findings reveal

that while the Brazilian government has played a significant role in the internationalization of

higher education, its actions have often been fragmented across various agencies. This lack

JANUS.NET, e-journal of International Relations

e-ISSN: 1647-7251

VOL. 16, Nº. 1, TD1

Thematic Dossier

Internationalization of Higher Education: Experiences and Challenges

June 2025, pp. 149-162

Internationalization of Higher Education and Public Policy: advances and Setbacks in the

Strategic Actions for the International Integration of Brazilian Universitiesl

José Alberto Miranda, Jackson Luiz Nunes Bentes

150

of coordination has resulted in both benefits and setbacks for the internationalization efforts

of Brazilian HEIs and for the country as a whole. Based on these findings, the study

recommends fostering stronger collaboration between the government and HEIs in the

formulation of national strategies, as well as promoting a clearer understanding of Brazil’s

existing capabilities, ambitions, and potential within the internationalization landscape.

Keywords

Brazil, Internationalization, Higher Education, Public Policy, Management.

Resumo

A criação de uma política pública nacional abrangente para a internacionalização do ensino

superior no Brasil tem sido identificada como uma prioridade urgente e indispensável. O Brasil

continua a enfrentar desafios no seu planeamento estratégico destinado a reforçar a

integração internacional no setor do ensino superior, sobretudo no que respeita à promoção

eficaz das suas universidades no cenário global. Este estudo pretende sublinhar a importância

da implementação de uma política nacional de internacionalização ajustada às universidades

brasileiras, baseada numa compreensão aprofundada das dinâmicas e características atuais

do processo de internacionalização no país. Para alcançar este objetivo, o estudo analisa

inicialmente as estruturas organizacionais dos principais órgãos governamentais, bem como

as suas respetivas iniciativas e programas relacionados com a internacionalização.

Posteriormente, estes elementos são objeto de análise crítica em relação aos processos de

gestão da internacionalização nas Instituições de Ensino Superior (IES), avaliando os seus

benefícios e limitações. Através desta análise, identificam-se os principais desafios que se

colocam ao desenvolvimento de uma política nacional coesa para a internacionalização. Do

ponto de vista metodológico, esta investigação adota uma abordagem qualitativa, recorrendo

à análise bibliográfica e documental. Os resultados evidenciam que, embora o governo

brasileiro desempenhe um papel relevante na internacionalização do ensino superior, a sua

ação tem sido frequentemente fragmentada entre diferentes órgãos. Esta falta de

coordenação tem provocado tanto ganhos como prejuízos para os esforços de

internacionalização das IES brasileiras e para o país em geral. Com base nestes resultados, o

estudo recomenda o fortalecimento da colaboração entre o governo e as IES na formulação

de estratégias nacionais, bem como a promoção de uma compreensão mais clara das

capacidades, ambições e potencialidades do Brasil no contexto da internacionalização.

Palavras-chave

Brasil, Internacionalização, Ensino Superior, Política Pública, Gestão, Brasil.

How to cite this article

Miranda, José Alberto & Bentes, Jackson Luiz Nunes (2025). Internationalization of Higher

Education and Public Policy: advances and Setbacks in the Strategic Actions for the International

Integration of Brazilian Universities. Janus.net, e-journal of international relations. Thematic

Dossier - Internationalization of Higher Education: Experiences and Challenges. VOL. 16, Nº. 1,

TD1. June 2025, pp. 149-162. DOI https://doi.org/10.26619/1647-7251.DT0325.10.

Article submitted on 8 April 2025 and accepted for publication on 12

May 2025.

JANUS.NET, e-journal of International Relations

e-ISSN: 1647-7251

VOL. 16, Nº. 1, TD1

Thematic Dossier

Internationalization of Higher Education: Experiences and Challenges

June 2025, pp. 149-162

Internationalization of Higher Education and Public Policy: advances and Setbacks in the

Strategic Actions for the International Integration of Brazilian Universitiesl

José Alberto Miranda, Jackson Luiz Nunes Bentes

151

INTERNATIONALIZATION OF HIGHER EDUCATION AND PUBLIC

POLICY: ADVANCES AND SETBACKS IN THE STRATEGIC ACTIONS

FOR THE INTERNATIONAL INTEGRATION OF BRAZILIAN

UNIVERSITIES

JOSÉ ALBERTO MIRANDA

JACKSON LUIZ NUNES BENTES

Introduction

The internationalization of Brazilian higher education has, over recent decades, become

consolidated as a strategic element for fostering academic, scientific, and cultural

innovation—particularly within an increasingly interconnected global context. According

to Jane Knight (2020), internationalization is defined as the process of integrating an

international, intercultural, or global dimension into the functions and missions of higher

education. In Brazil, this movement has gained momentum, though it continues to face

significant challenges stemming from the absence of a comprehensive strategic

framework.

The internationalization process in Brazilian higher education institutions (HEIs) has

sparked debate regarding its relevance, associated challenges, and its potential impact

on national development. For João Sguissardi and José Silva Júnior (2009),

internationalization can enhance knowledge exchange, expand global visibility for

universities, and foster greater academic competitiveness. However, national initiatives

often lack a coherent public policy that integrates governmental and institutional actions,

thereby limiting the scope and effectiveness of such efforts. Moreover, international

engagement initiatives have revealed substantial gaps in terms of strategic planning and

integrated management. These deficiencies compromise the sustainability of

internationalization projects and diminish their potential benefits—such as the formation

of international research networks and the attraction of global talent.

It is also essential to recognize that internationalization goes beyond the mere mobility

of students and faculty. As highlighted by De Wit (2015), the concept entails a broader

institutional transformation, including the enhancement of internationalized curricula,

strategic academic partnerships, and inclusion policies for international students. In

JANUS.NET, e-journal of International Relations

e-ISSN: 1647-7251

VOL. 16, Nº. 1, TD1

Thematic Dossier

Internationalization of Higher Education: Experiences and Challenges

June 2025, pp. 149-162

Internationalization of Higher Education and Public Policy: advances and Setbacks in the

Strategic Actions for the International Integration of Brazilian Universitiesl

José Alberto Miranda, Jackson Luiz Nunes Bentes

152

Brazil, developing a national internationalization policy requires a clear understanding of

the role of HEIs in the global landscape, as well as strategies to overcome local challenges

such as regional inequalities and budgetary constraints. As Stallivieri (2017) emphasizes,

it is crucial for institutions to conduct internal assessments in advance in order to

accurately identify their potential for international engagement and their capacity to

absorb the demands arising from this process.

Thus, the internationalization of higher education in Brazil represents a phenomenon that

offers significant opportunities but also demands coordinated efforts to address existing

structural and political challenges. As argued by Souza and Almeida (2021), the success

of this internationalization process depends on effective coordination between the state

and higher education institutions, with strategies that foster integration and strengthen

the Brazilian academic identity on the international stage.

This study aims to analyze the predominant characteristics of internationalization within

Brazilian universities, highlighting both the challenges and opportunities related to the

construction of an integrated national policy. Adopting a critical perspective, it examines

the actions and programs developed by key government agencies and their implications

for university governance and management. Using a qualitative methodology grounded

in bibliographic and documentary analysis, the study identifies both the gains and

setbacks resulting from governmental disarticulation and points toward the formulation

of more coherent strategies aligned with the broader interests of humanity.

In this way, the present article contributes to the ongoing discourse on the importance

of a national public policy aimed at promoting the internationalization of higher education

—specifically in Brazil — considering not only what has been accomplished, but, more

importantly, what remains to be achieved and what the country can offer in a competitive

global context. This analysis seeks to encourage a broader debate about the relevance

of internationalization as a strategic vector for strengthening Brazilian universities and

advancing the country’s national development agenda.

In the first part of this text, we examine the impact of globalization on education and the

integration of universities into the global landscape, primarily through the lens of Jane

Knight’s perspective and an analysis of how the internationalization process has unfolded

in countries lacking a clear national framework to guide such efforts.

In the second part, we reflect on the challenges facing the strategic international

engagement of Brazilian universities, with particular emphasis on how the development

of an international education policy requires public policy elements aligned with the

construction of a broader state project. This section highlights the weaknesses found in

national policy documents regarding the promotion of university internationalization in

Brazil.

In the third part, we present emerging trends in the international engagement of Brazilian

universities and the challenges involved in advancing this process, particularly through

South–South cooperation.

JANUS.NET, e-journal of International Relations

e-ISSN: 1647-7251

VOL. 16, Nº. 1, TD1

Thematic Dossier

Internationalization of Higher Education: Experiences and Challenges

June 2025, pp. 149-162

Internationalization of Higher Education and Public Policy: advances and Setbacks in the

Strategic Actions for the International Integration of Brazilian Universitiesl

José Alberto Miranda, Jackson Luiz Nunes Bentes

153

1. Globalization and the Strategic Integration of Universities into the

Global Landscape

Globalization, by expanding opportunities for academic and scientific cooperation,

compels universities to rethink their strategies for international integration in alignment

with the internationalization objectives of the countries in which they are embedded. This

scenario presents numerous potential benefits, including the enhancement of student

preparation for global labor markets, the elevation of institutional standards, and the

promotion of enriching cultural exchange that contributes to national development.

Globalization directly impacts how students must be prepared to understand and apply

their knowledge. The interconnected nature of global systems demands the capacity to

comprehend complex problems and to research and implement solutions that take these

interdependencies into account. Individual decisions can have transnational

repercussions, necessitating the development of skills to anticipate, assess, and ethically

evaluate personal and professional actions from a global perspective (Lauder, 2006).

The internationalization of higher education has become a strategic option for countries

seeking to position themselves in a competitive and globalized environment, where,

increasingly, “... internationalization is essential for survival” (Moreira & Ranincheski,

2019: 1). According to Jane Knight, there are several reasons a country might pursue

the development of a national public policy on internationalization. While national

motivations have evolved over the past two decades, key drivers include commercial

interests, the acquisition of talent, human resource development, diplomacy, and nation-

building (Knight, 2020).

Countries motivated by such objectives generally aim to align internal policies—

particularly in education—with national technological, scientific, and economic

development goals. Additionally, there is often an emphasis on integrating the country

into the international arena, underpinned by foreign policy. In this context, a national

public policy on internationalization represents a pathway through which the state

establishes guidelines to be followed by the various stakeholders involved in the process.

Despite the compelling nature of these motivations, many countries still lack a clearly

defined national policy.

To date, the literature has devoted limited attention to how the process of

internationalization unfolds in countries without specific national policies or strategic

direction. In such cases, what often exists are isolated, fragmented, and inconsistent

government initiatives. Moreover, universities are central actors in the

internationalization process. They are both recipients of public policy and active agents

in achieving policy goals, given that most internationalization-related actions are

conceptualized, developed, and implemented within the academic environment. Thus,

universities play a dual role—as both implementers and architects of internationalization

strategies—placing them at the center of progress in this field.

Identifying a country’s national interests and translating them into foreign policy strategy

is a highly complex task, particularly in democratic contexts. Governments increasingly

derive legitimacy from their ability to understand and address the needs and aspirations

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e-ISSN: 1647-7251

VOL. 16, Nº. 1, TD1

Thematic Dossier

Internationalization of Higher Education: Experiences and Challenges

June 2025, pp. 149-162

Internationalization of Higher Education and Public Policy: advances and Setbacks in the

Strategic Actions for the International Integration of Brazilian Universitiesl

José Alberto Miranda, Jackson Luiz Nunes Bentes

154

of the populations they represent. For this reason, in the contemporary world, states and

governments remain essential intermediaries in both domestic affairs and the

international system (Lafer, 2007).

According to Giacomino, there are currently three sources of power in international

politics: military power, economic power, and soft power. These sources are not mutually

exclusive but carry different weights in the diplomacy of each country (Giacomino, 2009).

Soft power strategies are often linked to culture, education, media, and tourism. For such

strategies to produce lasting results, they must go beyond isolated events and be

embedded in long-term programs, managed by specialists with secured financial

resources. The use of international education as a soft power tool is common in the

current international context. Countries such as Spain, France, the United Kingdom,

Germany, and the United States frequently leverage education in their foreign policy

strategies.

Many of these countries have developed specific policy documents. Spain, for example,

in an effort to strengthen the identity of its higher education system, designed and

implemented its internationalization policy through the publication of the document

Strategy for the Internationalization of Spanish Universities 2015–2020. The document

outlines the goal of:

“Consolidating a strong and internationally attractive university system that promotes

the inbound and outbound mobility of top students, faculty, researchers, and

administrative staff, enhances educational quality, leverages the Spanish language as a

vehicle for higher education, and supports the internationalization of educational

programs and research and innovation activities, thereby contributing to Spain’s

attractiveness and international competitiveness.” (Spain, 2014)

The United Kingdom and Germany—countries that employ international education as a

foreign policy instrument—have also developed strategic national documents that guide

the internationalization of their higher education systems. These documents typically

outline necessary actions for modernizing and enhancing the quality of university

systems, identifying internationalization as a strategic area for national development.

National actions and programs that use education as a diplomatic tool illustrate the

various forms of public diplomacy and aim to foster rapprochement and cooperative

relationships between nations. Academic exchanges promoted by countries are a clear

example of the practical application of soft power (Giacomino, 2009, p.159). Educational

cooperation initiatives can be seen as a positive dimension of international relations, as

they contribute to economic and social development and promote values such as

tolerance and respect for cultural diversity. Dougherty and Pfaltzgraff (2003) argue that

education can serve as a means of building a particular kind of political community.

Through education, political actors are encouraged—within their national frameworks—

to shift their loyalties, expectations, and political activities toward a new center, whose

institutions claim jurisdiction over established nation-states (Dougherty & Pfaltzgraff,

2003, p. 648).

In this study, the internationalization of higher education is understood as a commitment

to advancing international and comparative perspectives through teaching, research, and

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e-ISSN: 1647-7251

VOL. 16, Nº. 1, TD1

Thematic Dossier

Internationalization of Higher Education: Experiences and Challenges

June 2025, pp. 149-162

Internationalization of Higher Education and Public Policy: advances and Setbacks in the

Strategic Actions for the International Integration of Brazilian Universitiesl

José Alberto Miranda, Jackson Luiz Nunes Bentes

155

service missions in higher education. It defines the institution's ethos and values,

influencing the entirety of its educational enterprise. It should be considered an

institutional imperative, not merely a desirable option (Hudzik, 2015). While

internationalization envisions the institution beyond national borders, universities remain

rooted in local and national contexts and influenced by national policies and local

constituencies. The dichotomy between the local and the global is a false one;

internationalization mediates between the two, with global dynamics impacting the local

and vice versa.

However, internationalization does not solely mean the physical movement of individuals

to distant locations, though mobility is often involved. The central notion is the mobility

of ideas, which may circulate not only through travel but also via the internet and other

digital media. According to Hudzik (2015), the dominant models of the modern

university—shaped in the eighteenth and nineteenth centuries—paralleled the rise of the

nation-state. Universities were fundamentally national institutions. Tensions often arose

between serving national interests and fostering the transnational exchange of ideas and

scholars in pursuit of global knowledge. Internationalization at that time was often in

conflict with political, institutional, and cultural constraints, and viewed as an

individualistic phenomenon.

Higher education institutions exhibit unique characteristics. Even within centralized

national systems, institutions develop distinct formal and informal cultures and

governance mechanisms shaped by local traditions and leadership. A comprehensive

internationalization process must be consistent with and committed to the institutional

principles of each HEI.

In developed countries, internationalization has been integrated into state policy and

implemented not only by HEIs but by the executive branch as a whole. In other words,

the role of state policy in promoting the internationalization of higher education

institutions in developed countries is explicit (Lima & Contel, 2011; Laus, 2012; De Wit,

2015; Stallivieri, 2017).

This interdependence and convergence between state actions and HEI initiatives in higher

education internationalization is of great importance, particularly when understood as a

set of policies and programs implemented by universities and governments in pragmatic

response to globalization (Gacel, 2003).

Thus, the central thesis emerges that the internationalization of higher education hinges

on the political decision of the state to pursue such a process. However, for the country

to move in a unified direction, HEI decisions must align with the guiding objectives of

governmental policies.

2. The Challenges of the Strategic International Integration of Brazilian

Universities

In Brazil, there are some low-impact initiatives in the realm of foreign policy that

nonetheless offer opportunities for young Latin American and African students to pursue

JANUS.NET, e-journal of International Relations

e-ISSN: 1647-7251

VOL. 16, Nº. 1, TD1

Thematic Dossier

Internationalization of Higher Education: Experiences and Challenges

June 2025, pp. 149-162

Internationalization of Higher Education and Public Policy: advances and Setbacks in the

Strategic Actions for the International Integration of Brazilian Universitiesl

José Alberto Miranda, Jackson Luiz Nunes Bentes

156

studies in the country. These programs aim to encourage educational exchange and

promote Brazilian culture, primarily within the field of scientific cooperation. Examples

include the Undergraduate Student Exchange Program (PEC-G), the Graduate Student

Exchange Program (PEC-PG), and, in the past, the landmark Science Without Borders

program.

Traditional forms of international relations among states have come to require new

expressions of power. Emerging international actors—such as multinational corporations,

NGOs, media organizations, and international public opinion—are now influenced more

by soft power than by hard power. To achieve national objectives, diplomacy has had to

recognize the role of public opinion and the media. In other words, foreign policy is now

shaped not only by governments but also by these new international actors. Among its

many functions, education serves to promote culture and shared values, contributing to

social cohesion and integration. Durkheim emphasized this point by identifying education

as an essential support for the construction and consolidation of the nation-state

(Durkheim, 1977).

In Brazil, the Division of Educational Affairs, located within the Ministry of Foreign Affairs,

is responsible for developing foreign policy actions related to education in collaboration

with other national government agencies. Among the Itamaraty’s key roles in educational

cooperation are its joint management of the PEC-G and PEC-PG programs with the

Ministry of Education, its oversight of general issues related to educational cooperation

in Brazil, participation in the negotiation of international education agreements, and

coordination of educational cooperation activities conducted abroad (Brazil, 2016b).

Developing a policy for international education requires public policy components that

align with a broader state-building project. Presently, although there are economic,

political, academic, and sociocultural motivations supporting national development

through education and technology, there remains a lack of clear strategies demonstrating

how international education can strengthen Brazil's international position within the

global higher education system.

According to José Alberto de Miranda and Luciane Stallivieri, there are numerous

weaknesses in Brazil’s official documents regarding the promotion of internationalization

in higher education institutions. These documents, they argue, are not grounded in an

ambitious public policy capable of defining the direction Brazil seeks to pursue regarding

the global integration of its universities. Moreover, the absence of an official policy

framework hampers progress in this field, complicating the conceptualization of

internationalization for a country with Brazil’s unique economic, geographic, and linguistic

profile, as well as the definition of quality standards (Miranda & Stallivieri, p. 610).

In Brazil, scientific and technological knowledge production is largely concentrated at the

graduate level. International cooperation typically begins with the training of doctoral

students and professors abroad, which, over the course of their careers, leads to

relationships not only through the consumption of international literature but also

through academic partnerships with the departments and research centers in which they

studied. This process enables advanced international cooperation, characterized by the

joint production of knowledge through collaborative research projects. The development

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e-ISSN: 1647-7251

VOL. 16, Nº. 1, TD1

Thematic Dossier

Internationalization of Higher Education: Experiences and Challenges

June 2025, pp. 149-162

Internationalization of Higher Education and Public Policy: advances and Setbacks in the

Strategic Actions for the International Integration of Brazilian Universitiesl

José Alberto Miranda, Jackson Luiz Nunes Bentes

157

of academic networks supported by funding calls promotes research and the training of

human resources in partnership with international institutions. Graduate-level

international cooperation is primarily managed by Capes/MEC and CNPq/MCT. Both

agencies operate in overlapping areas. While CNPq is working to revitalize its research

agenda, approximately 60% of its resources still go toward scholarships—that is, training.

Efforts to promote internationalization by the Ministry of Education focus, on one hand,

on graduate student training, emphasizing the importance of international internships.

Scholarships are allocated according to each academic field’s domestic training capacity.

“Doctoral programs in Brazil must be complemented with shorter-term international

internships. Evidently, certain fields—whether due to the need for mass training, the

underdevelopment of domestic programs, or the complete absence of such programs—

heavily depend on foreign training.” Furthermore, the plan proposes to “reinforce

graduate education abroad as an integral component of Brazil’s human capital

development system; implement a more efficient system to improve the orientation,

selection, and monitoring of scholarship recipients; and restore the international

purchasing power of scholarships in the short term by creating differentiated mechanisms

that consider, among other factors, the destination country of the candidate” (CAPES

2025). On the other hand, the plan also encourages researcher internationalization

through international exchanges, the articulation of national and international

partnerships, and the institutionalization of sabbatical opportunities, with a focus on

postdoctoral studies to enhance scientific exchange.

It is also worth noting that some graduate programs are highly internationalized, with

consolidated international academic networks, the regular presence of distinguished

foreign researchers, high-quality joint international publications, and Brazilian scholars

serving as visiting professors or guest lecturers abroad. At the same time, other

programs exhibit minimal or no international engagement, remaining focused primarily

on Brazilian or regional contexts. In other words, graduate programs in Brazil vary widely

in their levels of internationalization (Morosini, 2011).

3. New Trends in the International Integration of Brazilian Universities

As the internationalization of higher education continues to advance, new possibilities

have emerged, reflecting global socio-economic realignments—such as the shift of the

world’s center of gravity from the North Atlantic to the Global South and East Asia, and

a reduction in the process of Americanization, whereby the United States no longer holds

undisputed global hegemony. This transition is also marked by the systematic weakening

of the authority of nation-states (Hobsbawm, 2010). The BRICS countries—Brazil, Russia,

India, China, and new members—stand out as emerging powers. Despite accounting for

nearly half of the global population, 20% of the world's landmass, and 15% of global

GDP, these nations still face major obstacles in becoming hubs of innovation. These

challenges include authoritarian regimes, overpopulation, conflicting trade relationships,

and linguistic barriers. Thus, the traditional model of international cooperation—

characterized by a South-North qualification logic—remains dominant, although it is now

JANUS.NET, e-journal of International Relations

e-ISSN: 1647-7251

VOL. 16, Nº. 1, TD1

Thematic Dossier

Internationalization of Higher Education: Experiences and Challenges

June 2025, pp. 149-162

Internationalization of Higher Education and Public Policy: advances and Setbacks in the

Strategic Actions for the International Integration of Brazilian Universitiesl

José Alberto Miranda, Jackson Luiz Nunes Bentes

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more commonly applied to specific programs and areas of expertise rather than general

or isolated demands.

In summary, international higher education is shifting from an era dominated by public

policies fostering South-North relations to a new phase increasingly marked by South-

South cooperation. While the accumulated expertise of developed countries underscores

the continued importance of South-North internationalization, South-South cooperation—

grounded in solidarity among developing nations—has the added benefit of strengthening

regional blocs in a transnationalized world.

As noted by Marília Morosini, every academic exchange has a dual character. The

expansion of South-South cooperation can also stem from Brazilian commercial interests,

thus mirroring the same logic found in traditional international cooperation. The point

here is that as developing countries increase their qualifications, stronger exchange

relationships can be established—ranging from graduate and postdoctoral education, to

academic networks, and even commercial opportunities such as book publishing, faculty

exchanges, and consulting services (Morosini, 2011).

According to Almerinda de Carvalho, head of the Division of Educational Affairs at the

Ministry of Foreign Affairs, the internationalization of higher education affects Brazil’s

global standing in three key dimensions: (a) economically, by producing a more qualified

workforce to drive national development; (b) politically, by strengthening diplomatic ties

through educational cooperation as part of a positive foreign policy agenda, promoting

Brazil’s image as a nation grounded in solidarity and committed to peace, mutual

understanding, and international trust; and (c) culturally, through interpersonal

exchange, language acquisition, and shared experiences that foster closer bonds with

other societies (Carvalho, 2014).

Capes has pursued a truly academic internationalization of Brazil’s university system and

is recognized internationally as an effective agency in this regard. One of the agency’s

original goals at its founding in 1951 was to address gaps in Brazil’s educational system—

particularly in comparison to major global powers—through scientific and academic

cooperation (Canedo & Garcia, 2004–2005). With the development of graduate programs

in Brazil over the years, conditions were created for internationalization to evolve from a

reactive, receiver-oriented model to one based on more equitable collaboration among

inter-institutional groups (Laus & Morosini, 2005).

At the governmental level, the promotion of university internationalization must acquire

strategic significance for the nation. However, current policy documents rarely articulate

this objective explicitly. Instead, they tend to reference broader goals such as national

development, human capital formation, and the promotion of science and technology

research. Brazilian universities’ openness to the world must be accompanied by greater

reciprocity, enabling modernization and innovation through international cooperation.

Presently, much of Brazil’s international cooperation remains one-sided, often benefiting

only one of the participating partners.

This lack of reciprocity is not consistently addressed in Brazil’s official documents.

Although economic, political, academic, and sociocultural motivations for

internationalization are acknowledged as essential to supporting the country’s

JANUS.NET, e-journal of International Relations

e-ISSN: 1647-7251

VOL. 16, Nº. 1, TD1

Thematic Dossier

Internationalization of Higher Education: Experiences and Challenges

June 2025, pp. 149-162

Internationalization of Higher Education and Public Policy: advances and Setbacks in the

Strategic Actions for the International Integration of Brazilian Universitiesl

José Alberto Miranda, Jackson Luiz Nunes Bentes

159

development, there is still an absence of clear strategies showing how internationalization

will strengthen Brazil’s position within the global higher education system. In other

words, there is no concrete vision for how Brazil intends to actively assert itself on the

international education stage through its higher education institutions.

The absence of a comprehensive national document guiding the design and

implementation of regional and national internationalization policies impedes progress in

the field. This gap also hinders the conceptualization of internationalization in the

Brazilian context and obstructs the definition of quality parameters that reflect the

country’s unique economic, geographic, and linguistic characteristics.

Only through the construction of a positive policy agenda, continuous and productive

dialogue, inclusive debate, and the development of a national framework that

incorporates the perspectives of key stakeholders can Brazil establish a coherent and

long-term vision for higher education internationalization—one that aligns with the

country’s broader strategic objectives and global aspirations.

Conclusion

The reflections presented in this study indicate that, over the past twenty years, the

Brazilian government has played an important role in shaping the country’s higher

education landscape. However, it has acted in a fragmented and uncoordinated manner

through its various governmental agencies when it comes to the internationalization of

Brazilian universities. This disarticulation has had consequences for both the

management of internationalization at the institutional level and the formulation of

strategic directives that would enable Brazil to benefit more fully from global

engagement.

With the goal of contributing to the development of new interpretations and policy

pathways, this study identifies the urgent need for a national public policy on

internationalization—one that recognizes the varying degrees, actors, and potentials of

internationalization within Brazilian higher education. Cutting-edge research, aligned

with Brazil’s technological development needs, must be prioritized in order to enhance

the country's global competitiveness and, in turn, contribute to its broader social and

economic advancement.

Policy must not only guide efforts to increase the degree of internationalization across

universities but also propose innovative approaches. For example, recognizing

internationalization as an integral part of the university mission, promoting virtual

collaboration initiatives to make internationalized training more inclusive, and creating

incentives and mechanisms to involve more students and faculty with international

experience are all key elements of a contemporary national strategy.

The international integration of Brazilian universities must be developed domestically and

serve as the driving force behind a truly national process. It is necessary to move beyond

the current duality in which institutions await guidance from the government, and the

government, in turn, expects action from the institutions.

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Placing the entire responsibility for developing internationalization on the universities

themselves reveals the absence of a clear governmental intention to strategically position

Brazil on a global stage through science, technology, extension expertise, and globally

relevant education. It normalizes the country’s reactive stance toward

internationalization and, consequently, its marginal role in the global development of

science and technology. This perpetuates a model in which Brazil remains primarily an

exporter of intellectual talent and raw materials.

Therefore, it is urgent that internationalization be understood in a broader, more systemic

manner—across all levels of education—so that higher education can truly contribute to

societal transformation. Higher education is only the tip of the iceberg in the educational

system.

To view Brazil exclusively through the lens of the “world-class university” model is to

disregard the country’s deep-rooted educational inequalities and social challenges.

Internationalization initiatives that fail to address, for example, the large number of

students pursuing teaching degrees—without any concerted effort to address this

imbalance—are at best disconnected from Brazil’s future and the preparation of its next

generations.

Public policy and internationalization must not be detached from social realities, nor

should they be designed solely to serve the interests of a narrow elite of individuals or

institutions. The guiding principles must be inclusion, democracy, and alignment with the

needs and aspirations of society as a whole, in the interest of ensuring that the benefits

of internationalization are widely shared.

When education becomes a central component of a country’s foreign policy agenda—

aimed at identity-building and community development—it is essential to reflect on who

formulates and who implements that policy. Such reflection is critical for enhancing the

national discourse on how the internationalization of higher education institutions relates

to the broader direction and destiny of the nation.

Nevertheless, it is evident that Brazil has yet to develop a clear identity framework for

the internationalization of higher education as a matter of public policy. The absence of

an official document capable of guiding higher education institutions, establishing clear

directives, and promoting the balanced development of Brazilian education in the global

arena reinforces the urgent need for a national identity framework. While several

programs and documents with targeted actions have emerged and offer clear benefits,

they have not stemmed from a cohesive public policy. As such, they have failed to provide

strategic direction or meaning to Brazil’s efforts to position itself more effectively in global

higher education.

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