Probably just being naive... but I thought drunk and disorderly is an offence. Why not station a copper in every emergency room (or PCSO) and whenever someone comes in on an ambulance who is just drunk and nothing else, they get booked for drunk and disorderly; since wasting ambulance/A&E time is definitely out of order. Criminal record and a fine for them. Could even have the the fine paid to the ambulance service as the "victim".