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I've said it before, they first have to build someone up with not only the overness but the merch-pushing power of Cena. Orton is the closest one, but even he isn't on Cena-levels yet.
Without a replacement, the heel turn cannot happen. And I honestly don't feel Orton could carry it by himself.
A heel turn would freshen up Cena, but without the big face for him to go up against, it's a lost cause.
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