Without reworked conscripts is no way to rework penals, because now no one soviet don't build conscripts. Penals comparison to conscripts looking very good. Conscripts right now is only selfguided AT grenade and nothing else (i even can't remember when i last time saw molotols....). Right way - rework conscripts and only THEN rework penals looking on new conscripts.
Actually conscript are not that bad since they have not received buff or nerf for a long time. It the VG, Riflemen and Tommies that are OP and need to be nerfed. As I have explained infantry that are available before minute 1 should be re balanced as they where in September patch with "weapon profiles" and "relative positioning" in mind.
Idea behind the suggestion is that Conscript should become more defensive oriented and Penal should become cheap and more aggressive oriented. Giving the option to upgrade them to elite infantry would allow to remain relevant in late game.