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Emissions like NOx and particulate are not directly related to fuel consumption. CO2 is though.
What you are effectively seeing is how much the manufacturer lied about the fuel consumption or how well they cheated the test. Plus between 2006 and 2016 didn’t the tax bands change and/or wasn’t there a change in the way they were tested?
I laugh at your 54mph. My 2005 Insight does 60mpg in traffic in the burbs and I can push it well past 100mpg on a motorway journey. But I have to pay £200+ tax and it’s not ULEZ compliant despite being one of the cleanest production engines ever built, because it’s a pre-2006 Japanese import.
Are the emissions from burning one litre of petrol the same regardless of the car?
My car (a 2006 1.8 litre petrol Civic) generally does at least 50mpg, and I can get 54+ out of it on long trips, but it's VED band is 'G' (152g/km) which is £240 a year.
My Mum has a 2016 1.4 litre petrol Polo, which is automatic. It's mpg is no better and I'm pretty sure slightly worse than my Civic, because it's automatic, and not a Honda. However, it is in the 'B' VED band (108g/km) so she pays £20 a year.
Surely this is bollocks - if I'm burning less petrol, aren't I emitting less CO2? There's no way cars can capture CO2, right?