it's hard to tell with sega of japan sometimes; at least in PSO2's case it looks like initial development had global release in mind, but that got canned sometime long before alpha, but not before they had some hints baked into a few places like the dragonkin language resembling what PSO1's Word Select system could have evolved into.

ultimately it seems like Sega of Japan didn't want to foot the bill for the costs of running other servers, localizing the content, and training support staff for language coverage; but seems to be all for finding other companies willing to handle that for their own regions. The fact that Microsoft couldn't even confirm Europe will be officially supported when they made their announcement makes me think SoJ is still clinging onto that idea even more than they reasonably could be.

the next game being global out of the gate is certainly possible; but unless Isao Okawa has been brought back from his grave I don't see SoJ having a sudden change of heart