BRUSSELS – A summit of the European Union’s 27 national leaders, charged with agreeing on a long-term budget for the bloc, broke up Friday without being able to reach a deal.

Coming just days after the 17 eurogroup finance ministers failed, yet again, to agree on the conditions for releasing badly needed bailout money for Greece, the failure of the two-day summit raises questions about how the bloc makes important decisions. In most cases, unanimity is required, meaning that each country wields veto power.

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The prospect of failure had hung over the EU leaders’ summit, charged with agreeing on a long-term spending plan of around $1.25 trillion for the 27-country bloc. Some countries wanted the budget to rise, while others insisted it had to fall.