I've participated in an expansion vote as my chapter's Panhel rep. IIRC, declaring the campus open for expansion would have required a majority vote. So if you have two yes votes and two no votes, that's not a majority and your campus is not open for expansion.
It's not solely the rep's decision how to vote. As rep, I went back to my chapter with the expansion proposal, and we decided as a chapter how to vote. I don't recall if we consulted anyone on the national/regional level (it was a long time ago).
It's unfortunate that your campus doesn't allow local sororities... my first thought was to suggest that each group formally organize as a local and become an associate member of your CPH. Maybe the best thing is to tell the groups, "sorry, we're not open for NPC expansion, but ask us again in a few months / a year / etc". In the meantime, maybe each group can become some sort of women's club or something... but that's their problem, not yours.
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