Josh - I think you are wanting a solution to a patient problem where there is, in actuality, not a significant issue in relation to the prescribing physician. The rules are very clear, the consequences usually devestating for the physicians and they are generally very reticent to cross the line. You have to remember, if it was an absolute, then it would be called the science of medicine, it is not and is called the Practice of Medicine.
The issue you now state is that you have forces pushing and pulling the dynamic. First lets be clear - the percentage of physicians who are knowing prescribing drugs patients do not need is more like 3-5% than 50%. You have some who do it to get the patient to shut up; you have some who do it to keep from getting sued; you have some who just weigh the possible side effects versus the risk of not doing something and just write the scrip. The actual number who are script factories is extremely low. Trying to pass a law, write regulations, or clutter our lives with more government intervention in our lives to solve/prevent any untoward outcome.
Texas is very aggressive in the punishment of docs. They will hammer them for just not documenting the actual reason for writing the scrip; they will hammer them if the patient has a problem. The Texas Medical Board posts all their actions on their website and you can verify your physician there as well.
Check it out here
http://www.tmb.state.tx.us/
Be sure to look at the press releases, it is the area where the disciplinary actions are available in one place.