The issue is the victims on aggregate would rather not support the viability of that business. If no one has to pay, the business dies out. Perhaps a pipe dream, but less money at least means fewer actors in the space.
In the case of superpowers and terrorists, there are usually few superpowers, and (usually) they believe each other to be smart and to have stability of the status quo in mind. In the case of individual ransomware victims, you have no such expectations.
It seems to me that no government can make a fully plausible promise that they won't yield under pressure and, in any case, terrorism is extremely ill defined.
(My answer would be, the success of their terrorism. If you are mostly unsuccessful, nobody needs to negotiate with you.)
"Affected users are advised to refrain from paying the ransom as that would by no means help them decrypt their data. This advice is particularly true for the NotPetya incident, as the attackers have no means to restore victims’ data." http://www.securityweek.com/notpetya-destructive-wiper-disgu...