Both, filling a gap and adding risks. If you think about it from the side of the players, the best setup would be a locally well regulated industry with both physical and online casinos. The safest would be to play in online casinos that are registered and hosted in the same country. I understand that countries want to discourage people from playing, but creating bad rules only creates additional risks for the users and in practice does not reduce playing. If a casino does not want to pay you or tricks you in some way, your odds of being able to do something against them are much lower when they are in another jurisdiction.