He doesn't need to be ADR's partner in crime, he needs to be a lot more like his lacky. He should essentially be a good guy who does some heelish things, but only because ADR forces him to. This can be the constant struggle between ADR and RR, which leads to physical and emotional abuse from ADR towards RR. This can create the consistent heat for Del Rio that he has generally lacked. Instead they just have RR do heel things but the crowd still doesn't hate him for it, so when you have segments like on SD last week they just fall flat. Good Guy Dolph beating the bejesus out of RR didn't get him more over as a face, as the crowd didn't really like seeing it. RR isn't that type of heel. He isn't Bobby Heenan. Nobody wants to see RR get his comeuppance. The crowd wants to like him, so let them! And use that to generate heat for ADR. It's simple.