Since It seems you are new to the game I will explain.
1) You soft lock yourself out of MGs, Mortars and most important ATGs.
2) Penals bleed very easy due to their RA and they cost a lot to reinforce specially early on.
3) They have 0 utility. They are either decent AI or Shitty AT atm.
4) Building T1 for sniper means that you basically pay 500 mp and 10 fuel just to get a single unit and if you get something else from T1 then you lose all early map presence and will struggle to get any ground.
5) No snares meaning that since you don't have any AT measures you will struggle to fight vehicles.
Clown car + Penals against OKW is the only semi-viable thing in T1 atm. Or if you are for example VonIvan\Kimbo you might pull off T1 against anyone.
All of this for 1v1 and most of this for team modes.
Sorry I play the game since 2013.
I didnt play Soviet for 4 years so I cant tell the problems of faction.
I have an idea to balance between Cons & Penal. But it doesnt fix the Tier. And may mess up Commander. Or not a good idea at all:
Cons: reduce weapon accuracy, increase their toughness.
Penal: reduce toughness, reduce cost. Able to upgrade either AI or AT option
- Success play is to merge Conscript to Penal for better weapon & toughness