The agricultural sector may not have to fully contribute to the Emissions Trading Scheme until 2018.
The Government says proposed changes to the ETS means New Zealand will still do a lot to reduce carbon emissions, without the scheme impacting unreasonably on businesses and households.
The consultation paper makes a number of proposals including keeping a cap on the cost of carbon emissions for businesses until at least 2015, instead of slowly raising the cost.
It also seeks to extend the timeframe of bringing the agricultural industry into the scheme fully until 2018.
Federated Farmers says farmers will welcome the postponement.
Green party co-leader Russel Norman says the Government keeps delaying the full implementation of the Emissions Trading Scheme.
He says farmers would be liable for only 10% of their emissions in 2015.
Greenpeace says the paper threatens New Zealand's global green reputation.
No decision yet
Climate Change Issues Minister Tim Groser says no decision has been made to defer bringing agriculture into the Emissions Trading Scheme in 2015.
He told Morning Report the Government is proposing an independent review in two years, which will examine where international processes and research are with regard to climate change.