SYSTEM OF EVALUATION OF JOURNALS IN BRAZIL: IMPACTS OF THE EVOLUTION OF THE QUALIS-PERIÓDICOS CRITERIA IN THE AREA OF EDUCATION SISTEMA DE EVALUACIÓN DE REVISTAS EN BRASIL: IMPACTOS DE LA EVOLUCIÓN DE LOS CRITERIOS QUALIS-PERIÓDICOS EN EL ÁREA DE EDUCACIÓN SISTEMA DE AVALIAÇÃO DE PERIÓDICOS NO BRASIL: IMPACTOS DA EVOLUÇÃO DOS CRITÉRIOS DO QUALIS-PERIÓDICOS DA ÁREA DE EDUCAÇÃO

The present article analyzes the production of the Qualis-Periódicos in Education, in the period from 2010 to 2018 triennium 2010 to 2012; quadrennium 2013 to 2016 and mid-term evaluation on the years 2017 and 2018. The instrument serves to evaluate the production of faculty members of the Graduate System in Brazil, although it is often used for other purposes. It is possible to determine two types of change in the evaluation criteria: either incremental, between the triennium and the quadrennium; or disruptive, wherein in 2019, in the mid-term evaluation, a new factor is introduced to measure impact or citation. The research analyses are based on documental sources: the Qualis itself and the guiding and evaluative documents of the education area. The data show a considerable increase in the stratification of the journals caused by the objectification of the criteria in the first periods and a rupture in the last one; a drastic decrease of the evaluation universe with the introduction of the concept of parent area; and an uncertainty about the evaluation that will come in 2021.


Introduction
The Qualis-Periódicos is much more than a portal organized by the Coordenação de Aperfeiçoamento de Pessoal de Nível Superior (CAPES) 1 to sanction a national ranking of journals in each area of knowledge, since, by classifying and valuing the scientific communication vehicles, it is used to qualify the production of teachers linked to the Brazilian Postgraduate System, interfering directly in the quadrennial score of the Postgraduate Programs. Thus, the well evaluated journals transfer value to their authors, improving the score of their programs and allowing greater resources from funding agencies and better management autonomy over the expenses incurred. CAPES, therefore, creates a national metric to face this specific assessment issueregardless of regional or historical differences -, so that it returns to society the investment made in the academy, through the indication of the Postgraduate results in the generation of human resources and in the development of new products and processes (MONTEIRO; FURLAN; SUAREZ, 2017).
However, the management of journals facing the metrics adopted by the evaluation system -by Qualis-Periódicos -has as a result an extremely competitive environment due to the imposition of statistical locks that perpetuate inequalities or declassify journals through the evaluation strata fixed, on behalf of preserving the quality of national scientific production and scientific vehicles, increasingly internationalized. Although it is possible to recognize that Qualis has been one of the elements responsible for the improvement of national journals, the competitive climate makes it difficult for the competencies of the editorial team to be totally 1 Coordination for the Improvement of Higher Education Personnel. According to Gil (2002Gil ( , 2008, it is possible to say that the research is explanatory, i.e., it seeks to identify the reasons for the occurrence of facts; descriptive in nature; and uses documentary sources of information: CAPES official documents (MARCONI; LAKATOS, 2002). The purpose, therefore, is to contribute to the understanding, strengthening and improvement of the evaluation system of academic production in Brazil, towards the improvements that may be necessary, from the discursive perspective built by this text.

Why do journals need to be evaluated?
Between December 2019 and November 2020, the Brazilian scientific production exceeded 275 thousand published articles (NATURE INDEX, 2021). The numbers aggregate an expressive set of institutions such as universities, research centers, with or without support from funding agencies, scattered in thousands of scientific journals that publish the built knowledge.
This entire universe is subject to rules that measure the regularity of the vehicles of publication; the standardization of articles; the verification of the originality of the production, among other procedures. Therefore, it is necessary to evaluate in order to guide public policies to encourage the academic sector. However, evaluating the production of knowledge can be promote positive reflections on how to act in the future, offering stability to the evaluation system itself, as long as it is visible 2 and allow the necessary corrections for adjustments and improvements (PONCE et al. , 2017).
The guarantee that a published work contributes to the construction of scientific knowledge, that it follows recognized research methods in its execution and that it is presented within the national or international standards of standardization, is given by the reliability and prestige that the journal achieves in the evaluation system, giving back to the authors recognition for their findings. It is essential that the system has rigorous criteria to assess the quality of the scientific vehicle, although the evaluation metrics are historically in constant improvement.
In Brazil, the journal evaluation system is the responsibility of CAPES, a foundation of the Ministry of Education (MEC), which has among its institutional roles to evaluate, expand, and consolidate the stricto sensu postgraduate. It is part of CAPES attributions: • evaluation of stricto sensu postgraduate; • access to and dissemination of scientific production; • investments in the training of high-level human resources in the country and abroad; • promotion of international scientific cooperation; • induction and promotion of initial and continuing education of teachers for basic education in face-to-face and distance formats (BRASIL, 2020, our translation).
The Qualis-Journals, therefore, is one of the evaluation instruments of the National Another point to be remembered is that all Qualis requirements influence the management processes of the journals, both in their production practices, as in the quality of publication, or even in the search for meeting the demands of indexing, instilling in editors' standards to keep the journal in prominence in the area. Besides that, the maintenance of the criteria of the evaluation system of CAPES is unstable, which reduces the collaboration among 6 agencies could create forms of support so that the editorial teams do not feel so prejudiced in the evaluation processes.
CAPES, in turn, minimizes the role of Qualis in the Brazilian scientific evaluation framework, emphasizing its origin and function. It clarifies, therefore, that Qualis is not, for example, an indexer -although many publishers want to see their journals "indexed" in the evaluative instrument -, it is not a bibliometric base, but it concerns the teaching production in the professors who belong to the Postgraduate courses. Thus, it is not the purpose of Qualis to classify journals or attest their quality and much less to be used outside the scope set by the Brazilian Postgraduate Evaluation System.
As Barradas Barata (2016) notes, the submission of articles in journals considers aspects related to the journal, in addition to its Qualis stratum, such as: target audience, credibility and scope. The author reiterates that the Qualis was not developed to assess the individual scientific performance of authors -it does not have the capacity for such -, since it was designed to evaluate and analyze the collective production of a Postgraduate program. It also points out that the measuring instrument is not very sensitive to journals that change their indicators in an accelerated manner, since the period of use is dated (three or four years), fitting corrections only for the next evaluation.
Hence the volume of complaints about the lack of dialogue between CAPES and editors, who usually seek to obtain a better classification to positively increase their ability to reach sources of funding. It is important to emphasize that the Brazilian Funding Agencies are the first to encourage this competitive behavior by demanding, as already mentioned, that the journals awarded by their edicts are at the top of Qualis.

Analyzing the data
According to the objectives outlined by the research, we set as object of analysis the is a reorganization of the strata, as we said, and it is proposed that A1 < A2; A1 + A2 < A3 + A4; A1 + A2 + A3 + A4 ≤ 50%, thus, the remaining journals would be in the strata B1, B2, B3 and B4. Those that were not considered scientific journals would be in stratum C (CAPES,

2019).
From all these changes -whether in indicator criteria or in the most recent structuring standards: Qualis reference for each parent area and new stratification -it is possible to visualize and compare the impact of this change in the classification of journals in Table 1.   It is possible to observe that many journals achieved better classification during the quadrennium 2013-2016, even with more objective requirements, with criteria that became more specific. However, many journals disappeared from the evaluated set in Education in the middle term (2019): with the idea of the parent area, they were evaluated in other areas of knowledge. In this sense, Chart 1 illustrates the impact of the measure for journals classified in A1 and A2, strata that identify the best journals throughout the period 2010 to 2018. 10 the national journals from the others 7 , i.e., it meets the difference, for example, between a journal predominantly consisting of articles in Portuguese -which must meet the h 5 -and another consisting of articles in English -which must meet the Impact Factor. The h 5 of national journals are now corrected by Harzing's Publish or Perish software. It was also determined that journals with h index equal to zero would be classified in C, and the other strata were divided into eight groups with an average of 12.5% per group, in which the highest was the one with the highest h index (CAPES, 2021).
In short, in the evaluation proposed for the quadrennium 2017 to 2020, besides the journals being evaluated by their parent or sister areas, they will be classified according to their impact, by the language in which they publish, reducing considerably the number of journals evaluated and, therefore, reducing the number of journals in the A1 and A2 strata, creating high expectations about the results of Qualis 2021.

Conclusion
For all that has been said, it is configured the importance of Qualis-Periódicos for the evaluation of the teaching production linked to the programs of stricto sensu postgraduate, in Brazil. Even assuming many functions for which it was not created, the instrument remains was carried out with a new differentiator -an impact meter -that although it was not used as the sole factor, created conditions to conduct the next evaluation (2021).
It remains to evaluate the effects of the change, precisely in 2021. The h index is here to stay, and its effects will be materialized, while editorial teams begin to worry about the possibility of dialogue after the classification and postgraduate coordinators begin to worry about the effects of the evaluation of faculty production in the result of the evaluation of 7 We tried to avoid that national journal cease to be attractive to researchers, compromising the Brazilian research agenda, turning it to international interests and excluding local issues (PEREZ, 2020). 11 programs. The entire scientific community, however, looks with concern to the Qualis score, since it guides choices in other agencies, such as when a teacher asks for a Research Grant to CNPq.
Although it is possible to think that evaluation parameters such as Qualis-Periódicos are recent -the historical series assembled for this article counts nine years -and that the criteria are still in an incremental phase, it is not so: on the one hand, 2021 will bring a rupture, a new gauge, abandoning the incremental trend; on the other hand, it is perceived a movement within the evaluation sectors for the extinction of Qualis. It is necessary to understand and reflect more on the system of evaluation of journals and on the indicators that value the teaching production in the country, pushing aside the interests of interest groups or individuals who wish to guide Brazilian research.