The sport has held an increasing number of games abroad in recent years - with the Tottenham Hotspur Stadium in London staging Sunday's (13.10.24) clash between the Chicago Bears and Jacksonville Jaguars - and Goodell has suggested that the showpiece event could take place overseas eventually.
The commissioner told a fan forum in London: "We've always traditionally tried to play a Super Bowl in an NFL city - that was always sort of a reward for the cities that have NFL franchises.
"But things change. It wouldn't surprise me at all if that happens one day."
Goodell is aiming for a scenario where every NFL franchise plays at least one international game per season.
He said: "If we expand our regular season from 17 games to 18, and reduce the preseason from three to two, I could see us at the same time saying, 'Every team will play an international game every year'.
"If we do expand our season to an 18-and-two structure, I see us going to 16 of those games being in international markets."
Goodell has promised that NFL matches will soon be held in the Irish capital Dublin with Asia also eyed as a possible destination.
He said: "I have no doubt that we're going to be playing in Ireland. I don't know if it will be next year, but it's coming soon.
"We're also looking at other markets in the other direction, towards Asia. There's probably more interest than we can handle."