Prior to New Jersey amending their state constitution to allow online sports betting in 2011, and mostly leading to the opening of online gambling we're experiencing now, enforcement was usually taken against the "casinos" rather than the handlers. Back then it was CEOs of the betting companies getting caught on their flight layovers and charged with the illegal gambling stuff.
Doubt the intention is to enforce against the gamblers for the reasons already implied here, like the difficulty of tracking and enforcing vpn monitoring.