You have to remember something about wrestlers rating wrestlers. They rate guys on things fans can't see/don't care about. Who is easy to work with? Who works light but looks stiff & realistic? Who do they trust to keep them safe? Who can reign them in or help them understand when to let loose? These are things that mean very little or nothing aesthetically to a fan (nor should they, because as viewers, we just want the meal, we don't care about the recipe).
A good example of this is Kane. Wrestlers RAVE about Kane. CM Punk tells people he thinks he's not a good, but a GREAT worker. That's also the locker room consensus. People love working with Kane. From a fan perspective, he ranges from passable to shit. He's a standard big man. His resume of great matches isn't very long. He's just a guy. Nobody is confusing him with Kobashi. So when wrestlers rave about Orton (or anybody, for that matter) you have to take it with a grain of salt. Wrestlers aren't fans.
One non wrestler who always praises Orton is Meltzer. Keller likes his work a lot, too. But those are both guys who really like that vintage 00's WWE main event style. And if that style isn't right up the Orton alley, I don't know what is. Tellin' stories, bro. Grab a hold. Carbon copy match structure, rinse repeat.
I just think he's a guy who works to the level of his opponent. Put him with a bum, and he can't lead that bum. He often gets lost. Put him with a great worker, and he can be great. Because technically he's very good. Always in the right place, good timing, good base, etc. Is he going to carry Khali or Junkyard Dog or Kozlov or Darren Young or Kofi? Nope.