The CARS program is about stimulating sales for the auto industry. Mileage ratings are a sidelight.
IMHO, the facts that (1) the trade-ins are being destroyed and (2) there’s a less-than-25-year-old cap are the tip-offs.
Detroit gets more sales if the number of cars on the road is reduced.
The over-25-year crop of autos are the ones which are the real polluters.