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Jim Kliesch, a senior engineer with the Union of Concerned Scientists, gave mixed reviews to the plan, arguing that the first three years would push the industry, but the following two years would only seek modest increases. ''The proposal starts off at full speed, but then puts on the brakes,'' he said.

Congress sought the tougher standards last year, arguing that an increase in fuel efficiency would help reduce greenhouse gas emissions and the nation's dependence upon imported oil. The law, the first major changes in three decades, requires the nation's fleet of new vehicles to increase its efficiency by 10 mpg from its current average of 25 mpg, or a 40 percent increase.

The fleet of new passenger cars is currently required to meet a 27.5 mpg average, while sport utility vehicles, pickup trucks and vans must hit a target of 22.5 mpg. Among the current fleet, passenger cars average about 31.3 mpg while light trucks get about 23.1 mpg.

The Bush administration has opposed attempts by California and other states to implement a strict program to reduce vehicle tailpipe emissions. Peters said the federal plan would reduce fuel consumption ''in a way that is consistent nationwide and also doesn't compromise vehicle safety.''

Buried inside the 417-page proposal is a section that would prevent states, such as California, from regulating tailpipe fuel economy standards.

California Attorney General Jerry Brown said the provisions were a ''covert assault'' on his state's efforts to reduce greenhouse gas emissions. He vowed to ''fight it every step of the way and we will sue them if necessary.''

Brown said the ''pre-emption'' language in the plan ignored rulings by the Supreme Court and two federal district courts that said the federal gas mileage standards were separate from state greenhouse gas regulations.

The plan is expected to be finalized by the end of President Bush's term in office.

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