How to start and narrow a public policy research paper on Death Penalty

Hello,
I have to write a public policy research paper (7 pages) on the death penalty.
Per the instructor it is NOT to be a position/opinion/argument paper and should focus more on court cases or bills opposed to methods of executions.

My question is How to start and what can I focus on so that the paper is still cohesive. Do I perhaps pick a state and look at the history, process and statistics??

Thank You

Sounds like it is supposed to be a research paper. You can still have theme, even if it is not a position. You might notice a theme emerging as you read the articles you collect to write this. Start by reading some interesting articles... and simply write about them!

So-and-So writes that the death penalty...

Get a strong collection, and start drawing conclusions.