The high dollar exchange rate in combination with high interest rates also created an influx of foreign capital flows to the United States and decreased investment opportunities for American businesses and individuals. The manufacturing sector was most heavily impacted by the high dollar value. In 1984, the manufacturing sector faced import penetration rates of 25%. The "super dollar" resulted in unusually high imports of manufactured goods at suppressed prices. The U.S. steel industry faced a combination of challenges from increasing technology, a sudden collapse of markets due to high interest rates, the displacement of large integrated producers, increasingly uncompetitive cost structure due to increasing wages and reliance on expensive raw materials, and increasing government regulations around environmental costs and taxes. Added to these pressures was the import injury inflicted by low cost, sometimes more efficient foreign producers, whose prices were further suppressed in the American market by the high dollar. The 1984 Trade Act developed new provisions for adjustment assistance, or assistance for industries that are damaged by a combination of imports and a changing industry environment. It maintained that as a requirement for receiving relief, the steel industry would be required to implement measures to overcome other factors and adjust to a changing market. The act built on the provisions of the Trade Act of 1974 and worked to expand, rather than limit, world trade as a means to improve the American economy. Not only did this act give the President greater authority in giving protections to the steel industry, it also granted the President the authority to liberalize trade with developing economies through Free Trade Agreements (FTA's) while extending the Generalized System of Preferences. The Act also made significant updates to the remedies and processes for settling domestic trade disputes. The injury caused by imports strengthened by the high dollar value resulted in job loss in the manufacturing sector, lower living standards, which put pressure on Congress and the Reagan Administration to implement protectionist measures. At the same time, these conditions catalyzed a broader debate around the measures necessary to develop domestic resources and to advance US competition. These measures include increasing investment in innovative technology, development of human capital through worker education and training, and reducing costs of energy and other production inputs. Competitiveness is an effort to examine all the forces needed to build up the strength of a nation's industries to compete with imports. In 1988, the Omnibus Foreign Trade and Competitiveness Act was passed. The Act's underlying goal was to bolster America's ability to compete in the world marketplace. It incorporated language on the need to address sources of American competition and to add new provisions for imposing import protection. The Act took into account U.S. import and export policy and proposed to provide industries more effective import relief and new tools to pry open foreign markets for American business.