My opinion is that you are trying to solve the problem from the wrong direction. I do it, and everyone does it these days, trying to employ technology to solve a basic human problem.

The human problem is that people believe that since they are talking everyone else must listen, and they won't stop until they are done. If there was a formally accepted and enforceable radio protocol in the amateur radio community for emergency communications, then perhaps you wouldn't be hearing chit-chat on 146.52.

You won't be able to change it overnight. You would have to convince every amateur that using another simplex frequency might help save someone's life. That might be too much of an inconvenience for them.