Of the many territorial and foreign councils of the BSA, nine had Order of the Arrow Lodges. Of these, five were assigned to an area: Yokahú 506 (Puerto Rico) and Arawak 562 (Virgin Islands) were in Area 2-J; Achsin 565 (Chamorro) was in Area 12-H; Cuauhtli 446 (Direct Service, Mexico City, Mexico) was in Area 9-B, and Chiriqui 391 (Canal Zone) was in Area 12-A (1950-52), then later in 6-E (1959-72).
The other four lodges were not originally included within the 12 Regions, and were instead overseen by the BSA's International Division. They were sometimes referred to as "Extra-Regional" or the so-called "Region 13," even though they weren't organized as such, nor did they have region/area leadership, planning, or area events. These lodges were Black Eagle 482 (Transatlantic), Hinode Goya 498 (Far East), Baluga 538 (Clark AFB, Philippines), and Gamenowinink 555 (Direct Service). Then in 1953, National listed Chiriqui 391 as "Extra-Regional".
I personally suspect that Clark AFB functioned more as a chartered organization and not a council for Baluga Lodge. This is similar to how the council for Cuauhtli 446 has traditionally been listed as the American Society of Mexico-- or even Scouts de America, when its official charters confirm Direct Service. More investigation is needed to see if perhaps, Direct Service was also the correct council for Baluga Lodge.
According to Councils of the BSA by Edward Morse: when the 12 Regions were first created,
"the Honolulu Council was designated as 'Extra Regional', along with Scouts in Alaska, United States possessions, and foreign countries.... At times 'Extra Regional' territories were also designated as 'Region XIII'. Hawaii, with its... three councils remained in Extra Regions or Region XIII status until 1936 when [it became part of] Region XII.
"The Guam Council (800), when it was organized in 1947, became part of Region XIII until Guam returned to Direct Service status in 1954.
"The Canal Zone Council (801) was also Extra Regional until 1 January 1959 when it joined Region VI.
"The present Transatlantic Council (802) and Far East Council (803) joined region XIII (Extra Regional) in 1953 and 1954, respectively. Puerto Rico and the Virgin Islands became part of Region II in 1953."
In 1965, Baluga Lodge #538 merged into Hinode Goya Lodge #498.
In 1973, the three remaining lodges were organized as part of the 1973 New Section Operation: Black Eagle 482 and Gamenowinink 555 to the Northeast Region, and Hinode Goya 498 to the Western Region.