14:28a But if there is no interpreter,

If there is no one to interpret,
-or-
If there is no one who can explain the meaning,

14:28b he should remain silent in the church and speak only to himself and God.

the one with the gift of unknown tongues should remain quiet in the church meeting. He should speak to himself and to God.
-or-
those who want to speak in an unknown/miraculous language should not speak in church. They should speak in their heart/head and to God.

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