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European Union leaders end a summit on Friday with no sign of a breakthrough toward a new constitution to serve as a rule book for the expanding bloc, and only limited progress on an economic growth initiative.

The constitution is meant to enable the bloc to function smoothly and avoid paralysis after it grows next May to 25 members from 15 now.

The growth initiative is intended to help revive stagnant economies across much of Europe by targeting public and private investment into cross-border transport and research projects, but faces skepticism due to a shortage of funds.

Diplomats and participants said Thursday's talks were barely negotiations at all, rather an opportunity for all members and accession states to restate their positions, and say what aspects of the draft treaty they want changed.

Belgian Foreign Minister Louis Michel called it a "bizarre summit" where ringing declarations were made about world affairs while little new was achieved on pressing European problems.

Italy, which holds the rotating presidency of the EU until the end of the year, wants the constitution negotiations wrapped up by mid-December.

Prime Minister Silvio Berlusconi told a news conference he would probably call a special informal meeting of leaders in mid-November to present a package deal after listening carefully to each country's requests.

Two issues have emerged as the most controversial. First is the size of the executive European Commission -- a mixture of a regulator, enforcer and proposer of legislation.

Smaller countries are determined to keep one seat on the EU executive per member state after enlargement to secure their influence and maintain a national link with Brussels.

The draft constitution proposes cutting the top table to 15 full members for the sake of efficiency, chosen by equal rotation among member states.

"You give away part of your sovereignty to a collective organ to exercise it for you. I would like to be able to tell my people: 'At least you have a voice'," said Cypriot President Tassos Papadopoulos, reflecting the views of many.

VOTING STRIFE

The other, even more divisive dispute is over the voting procedure for decision-making in the new Europe.

Under the draft, most EU policies would be adopted by a so-called double majority of at least half of all member states, representing at least 60 percent of the bloc's population. But this is anathema to Spain and Poland, which have a more favorable weighted voting arrangement enshrined in the Nice treaty, approved in 2000 and now in force.

"I like Cote d'Azur and the city of Nice, but this is not why we persist in defending the treaty," Polish Prime Minister Leszek Miller told reporters.

"We believe it reflects best such European ideals as solidarity, balance and compromise," he said. "Today, nobody really moved forward."

Friday's short session, including heads of government and foreign and finance ministers, will focus on foreign policy and and a proposed EU-wide growth initiative.

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