I think you can build some relationship by sending maned aircraft, particularly if there is any ground-to-air contact. There is also a risk being taken by the pilot.
I suppose it is a matter of degree, moving along a scale from American (or any nation's) soldiers on the ground fighting along side the rebel army, taking the exact same risks, to just sending money without publicly acknowledging what you are doing.
It seemed to me that as America becomes more risk adverse it is less likely to send troops in harms way it looses opportunities to form strong bonds early on in relations with the new governance. As a result, its potential future partners are less apt to see it as being a serious partner thereby setting the stage for poor future relations that other departments (like State) have to work to overcome.
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