Well there is the EAF they still have a moon base so maybe the sides even out when they get involved in the final battle royale. If the EAF can keep Andy, the DOM troopers, and the ZAFT grunts(sad but Yzak and Dearka will prolly be with this group with maybe a quick cameo from each) occupied then that could take care of Orb's appearance of being able to roll over ZAFT. That would even out the sides at start of the battle and then Orb would eventually dominate everyone and Shinn could switch near the last couple episodes to go after Dullindal.