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54.5 mpg CAFE doesn't mean 54.5 mpg EPA. It means 54.5 mpg based off the OLD 1970s testing. Since then the EPA has udpated its test multiple times to increase accuracy for the 'normal' driver. Each time it has updated things the rated mpg of vehicles has decreased. So, 54.5 mpg is more like a modern EPA rating of ~40 mpg.
It also doesn't mean EVERYTHING needs to get 54.5 mpg. CAFE is corperate average fuel economy which means the AVERAGE fuel economy of any one brand must be 54.5 mpg.
They also have over a decade to accomplish this. EVs will be large portion of tipping the scales to allow light truck sales.
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