Yes, if the casino is operating without a license in that country, nothing can be done when the player is scammed or fall victim of frozen account but if it's a licensed casino, there's always a way to report but I think it can be a bit expensive. That's why I am as saying that if the government can just appoint some individuals that can easily handle these kind situation without a serious charge.
But can't that gambler who is scammed by the illegal operating casino tell the authorities that this casino is operating illegally in the country and an action should be taken against them. Even if they are scammed by an online gambling casino that is operating with permission from a country that has not allowed that casino or the license to operate is not obtain, the law enforcement agencies has the tools to dig down the casino owners and held them accountable and responsible. In a nut shell, everything can happen if the government is serious in taking the action on the illegal operated casinos.