Every area needs their cottage hospital back (many of the buildings still there) with beds that can deal with basic breaks, sprains, casts, dislocations, wounds, fluids, observation with ability to pass on to a hospital or fracture clinic as needed, with a children's team and a designated falls team. Possibly a cluster of these can have between them one drunk tank facility. This would help free up another time consuming time waste for police and A&E workers.
Then re establish recuperation nursing homes that can take people of all ages who no longer need active hospital treatment but still need nursing care and are waiting for social care packages to be created. They would be heavily dominated by the elderly with close links to move people on to home care or residential nursing homes.
Sort out GPs and 111 so that there are face to face appointments easily available in all areas who pick up the low level stuff and people aren't sent to A&E because they need to be seen briefly by someone qualified. Out of hours care also needs to be improved.
Every area also needs a separate designated mental health A&E which not only is staffed to assess and meet immediate need with referral onto other services as needed, but has facilities to provide place of safety which is often what is most needed and from which a lot of people could then be safely discharged back to community support. (Which also needs sorting out.) Also would help the police who currently end up doing a fair amount of this.
Then much tougher expectations for accessing higher level services with people turned away to go to the lower level matching facility as needed. But if people were not scared and aware that they can't get a GP appointment, that their child is ill and children can deteriorate etc, they would feel more confident to use those services instead of all the eggs being in the one basket of A&E.
If it's not a case of money, then possibly its a case of a major refit in how police, NHS and social care money is organised and spent.