Syria ceasefire plan struggles to define a 'terrorist'

A UN draft discussion paper obtained by Reuters includes eight "framework principles" to be embraced by all countries and rebel groups that sign on to a ceasefire. The ceasefire plan also lists issues still to be negotiated, including defining "those terrorist organizations against whom combat is allowed."

The paper's authenticity was confirmed by two diplomats who spoke on condition of anonymity. The diplomats stressed that the document was a draft, originally prepared by the United Nations, and they said multiple versions of the draft have been passed back and forth among US, UN and other diplomats.

The ceasefire idea, endorsed by the UN Security Council on Dec. 18 at the urging of major powers and regional players that include the United States, Russia, Iran and Turkey, would exclude militant groups such as Islamic State, also known as ISIS, and al Qaeda-affiliated Nusra Front.

Diplomats say the result could be a messy, partial ceasefire in which government and acceptable rebel forces stop shooting at one another but still go after Islamic State militants and other groups branded as terrorist.

With Nusra Front fighters scattered across northern Syria rather than concentrated in any one place, attacks on them could harm civilians as well as groups who signed on to any ceasefire, diplomats and analysts said.

Identifying the groups still subject to attack is a diplomatic task delegated to Jordan's government.

In a tangible sign of the difficulty, the Jaysh al Islam militant group has agreed to take part in the peace talks, yet its leader was killed on December 31 in an air strike that rebel sources say was carried out by Russian aircraft.

The US State Department said the killing had complicated efforts to achieve a political settlement, a point it said US Secretary of State John Kerry made to Russian Foreign Minister Sergei Lavrov in a phone call on December 28.