There is a group growing in Girl Scouting it's called the "Juliettes" individually registered girls. These tend to be from troops who have lost girls due to jobs etc as they get older.
Sounds like the problem in your area is lack of volunteers. No new troops are created without a leader. No troop grows without recruitment by other girls , leader, council, advertising and making Scouting visable. Leaders can be recruited by the Council, but I would say most are recruited by girls begging and pleading with their parents to let them be involved in scouting.
I have a couple of suggest