This article builds a conceptual model based on the social justice theory and empirically tests the factors that affect customer's evaluation and behavioral response to service penalty using the data collected by critical incident method and questionnaire survey. The results show that customer's evaluation and behavioral response are determined by their cognition (perceived justice) and emotion (negative emotion) affected by the attributes of penalty(severity, flexibility, explanatory). Service enterprises should help their customers' build up perceived justices and avoid negative emotions by designing and performing their penalty policies properly. 