Ost player can ignore tier 1 building costs (and time) and this is supposed to help out penals? That doesn't make any sense to me. Or are you saying early Penals has been a problem and they need to be pushed back in relation to the gren spam? If that's what you're saying, well, I'm confused. Penals are hardly used in this game as is. Making them come (relatively speaking) later isn't going to help anything.
This is a very odd notion. Or perhaps I'm just missing something here.
Seems to me, you just don't like Ostheer having to build a building at game start when the Soviets do not and really has nothing to do with Penals.