It's a strange English idiom using "have been to..." and "had been to...", to mean you were in/at somewhere. I have been to; the cinema, the store, the station, Austria and other countries is accepted idiom for being "in" some place. However, it only works with "have been" or "had been". You can't say "I am to Austria", or "I was to the cinema".
I'm not sure what you're asking, exactly, but -- for what it's worth -- Google translates "(been) TO Austria"and "(been) IN Austria" as "v Rakousku." As I've seen, some locations take "v" and others take "na," and we just have to learn which is which.
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