...performed entirely outside of the U.S....??

Situation: We're working on an AP for a service contract for work to be performed in Afghanistan and we're not sure if the exception for a subcontracting plan in FAR 19.702((3) applies. The contract will require a very small amount of support in the US (less than 4% of the personnel required) for outprocessing and other administrative responsibilities.

Question: When would performance not be considered to be entirely outside of the US? Is it when there's at least one person supporting the contract within the US?? It seems kind of rediculous that a subcontracting plan would be required in that type of situation.