Washington — The United States must build up its military to prepare for the possibility of conflict with Russia and China, according to a new Pentagon strategy released on Friday by Defense Secretary Jim Mattis as he took Congress to task on the eve of a potential government shutdown for years of failing to reach budget deals.

Mattis described the strategy as a “clear-eyed appraisal of our security environment with a keen eye of America’s place in the world,” and said it is based on a “fundamental precept” that “America can afford survival.”

The new strategy touches on a range of issues, including operations in Afghanistan and the need to counter “rogue nations” like North Korea, but places the heaviest emphasis on ensuring the United States stays ahead of other world powers. It marks a shift from the Obama administration’s approach, which put greater emphasis on terrorism.

“We will continue to prosecute the campaign against terrorists, but great-power competition — not terrorism — is now the primary focus of U.S. national security,” Mattis said in a speech at Johns Hopkins University’s Paul H. Nitze School of Advanced International Studies. “This strategy is fit for our time, providing the American people the military required to protect our way of life, stand with our allies and live up to our responsibility to pass intact to the next generation those freedoms we enjoy today.”

The new document does not mention climate change as a threat, as the Obama administration typically did. Deputy Defense Secretary Patrick Shanahan predicted that would be the case last month, saying the Pentagon focused on other priorities. Mattis has stated the department must prepare for climate change, while President Donald Trump has repeatedly expressed skepticism that it exists.

The defense secretary saved some of his toughest words for lawmakers as the government approached a shutdown at midnight, saying the military needs Congress “back in the driver’s seat” and making budget decisions.

“For too long we have asked our military to stoically carry a ‘success at any cost’ attitude, as they worked tirelessly to accomplish the mission with inadequate and misaligned resources simply because the Congress could not maintain regular order,” Mattis said. “Loyalty must be a two-way street. We expect the magnificent men and women of our military to be faithful in their service, even when going in harm’s way. We must remain faithful to those who voluntarily sign a blank check to the American people, payable with their life.”