Part of the problem is that basically the closer you run the diesel engine to its optimum mpg-wise, the more NOx it emits. So, when you are trying very hard to make engines more efficient to get impressive mpg numbers, you also end up generating more NOx (Which you can then get rid of using urea, which I think is the preferred option in trucks and buses - think AdBlue or whatever it is called when used for cars.
The other part is, that producing cleaner Diesel cars is just more costly -- that was the main reason for VW to cheat.
However it does consume more AdBlue and/or produces less power the cleaner it is
They did it to sell a "better car" with disregard to pollution regulation