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Penals have much lower AI dps, which is even lower with PTRS upgrade.
You can also merge Conscripts into them instead of reinforcing to reduce your replacement costs and then Guards are more or less superior to Conscripts and most other Axis squads.
AT satchel has poor range and you often won't be able to throw it against competent opponents.
Penals are non-doctrinal, and should be your main infantry to engage other infantry unless you have upgraded Conscripts (SVT or PPSh). Satchels are demolition to bomb garrisoned buildings and bunkers if you don't have a SU-76 or tank with you, or if you need to blow a bridge. SU-85 and Zis-3 are your main anti-tank, PTRS Penals have a better snare than conscripts to blow engines. Vehicle satchel also skyrockets your vet level.
Guards are generally pretty good against nearly any target, and Button Vehicle is stupidly useful. Penals are solid anti-infantry with demolition options that can be used in a pinch against tanks.
Guards are honestly very useful, reliable units.
Either way, guards are pretty good, well rounded, and useful for nearly anything. Button Vehicle is very useful, and they pair well with Penals anyway. Stun vehicle, bomb with Penals, or enjoy the paralysis with Zis-3 or SU-85. Hell, SU-76 also has pretty good pen and enjoys a stunned target.
Guards Rifle are a boon on any commander.
I got a lot of satchel kills. It is very useful if you're using penals and tanks together. Enemies are often over-confident in 4v4 games, throwing units forward into path of my units. Satchel causes engine damage to the enemy tank, they can't retreat fast enough, my T34/85s finish the job. BOOM! Enemy tank destroyed.
This, my penals usually get better vehicle damage than infantry damage lol. Sucks when they suicide bomb my penals though.
Commander with Guards / 120mm Mortar / T-34/85 is probably my favorite overall, just so many options. Stun, satchel, blast with 85mm cannons