How is discouraging people who don't actually need an ER from showing up at an ER a bad idea? If I have something urgent but not an emergency, I could either do ER or Urgent Care. If I'm pretty confident Urgent Care can handle it, it might make more sense to do 1-2h to go to an urgent care option vs. 10 minutes to ER and 4h wait (for care which exposes me to lots of other risks).
There are a bunch of things where I'd rather wait 8-24h at home, even in pain, than go to an overloaded emergency room.