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I think its because Orton doesn't have any real rival right now that could compete or be seen equal to him. The closest would be Cena since he's a super face but there is no super heel to keep Orton as a super tweener.
The closest heel would either be Sheamus since he's the champion or the Nexus since they've been terrorizing RAW for a while. The problem is Sheamus is too much of a coward heel and Nexus lost momentum badly with their feud against Cena and friends.
Edge and Jericho are good heels but they are basically on the outside of Orton's rise and Cena's push for the title storyline.
Seeing as WWE wants to restart the Orton-Cena feud, one of them has to turn heel but also keep their "super" status or else its going to be the same bland feud as before. The problem might be the WWE doesn't want to turn Orton as a heel since he recently just came off a heel run while Cena is too valuable as a face to turn.
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