It's really great that that you put so much effort in communicating the thoughts behind the changes. I have a couple of questions/remarks, if you don't mind:
1. Keep Penals OP, as they are. Thus, a T1 investment will be worth it. The only issue is which gamemode you balance this opportunity cost to?
Because you allude to gamemode: Are they considered OP in all gamemodes? Asking because while they clearly see more use nowadays, it's not like
everybody is going for a T1 start, far from that. Yes, commanders that provide some means of light AT seem to be used predominantly, but it doesn't seem like penals overshadow everything else...
A question regarding the risk-reward thing, just so I'm on the same page there: What I think the idea is that a player picks a risk by going for penals. He has to be fairly aggressive with them, push other units off the field. If he manages to do so, he is ahead and probably can bring out his first T3 unit before the other player starts to have a significant impact with his LV (if he manages to field one). If he fails, he is confronted with a LV early and has to fall back on guards, partisans or even build T2. So, he is not out at that point, but at an disadvantage. Is that the same concept you have as well?
If so, this whole thing is about that you mean that it will no be possible to get to the sweet-spot in the balance to this risk/reward thing by tweaking the current penals a bit? Or did some other dynamic (re LVs?) change that required the further changes to penals?
Re:
"The Soviet guy can always build T2 to get a Zis gun"
In your example you assume that somebody would build two penals before going T2. Why? Because the typical number of Penals seems to be more like 3, also typically augmented with an M3 or sniper...
Re:
If Penals & Guards is the prescribed solution, how can PTRS Penals ever cause an issue? (in other words, what are you even complaining about?)
Valid point, but crossreading these comments I have the impression that the main issue is that once you settled for penals, there is nothing wrong in spamming them, because if things don't work out, you can transform them into whatever the situation requires.
Like, if somebody overcommits to penals now, the opponent can punish him by calling in a LV, to which you react by calling in e.g. guards which in turn costs popcap and manpower. With PTRS, one can simply turn one penal squad into a PTRS squad and be done with it. Similar to like if PGs would be available from OH T1.
Also, for guards at least you need to commit to a commander and buy a separate squad (granted, the "committing" part is not that hard since GMC overall is pretty good).
Re the part
"I don't agree with the Anti-infantry direction of current Penals because..."
In the points below that one, most of your comments are along the line of Penals scaling too well. Also you say that the penals in v1.0 where perceived as too weak. Well, ok, in v1.0 it seems like penals received four nerfs: No flamers anymore, reduced accuracy at vet3, increased pop-cap and higher vet requirements. The first point I'd say is related to their impact on the game, the other three (arguably) relate to their scaling.
Later you address the point of "take away flamer". Now, I know that flamers on inf are a sensitive subject, but looking at this more pragmatically: When people say penals feel too weak, they likely mostly mean the missing flamethrower because early game we are not at vet3, regardless of the requirements. So, what would you expect to see if you left the flamer, but applied the other three nerfs? Like, this would not decrease the chance to get the reward, but would up the risk a bit, no? Also, this would make roving late game penal blobs less effective and more expensive...