How can you possibly think this will work? 18, 21 - it makes no difference: the only way you can stop under-age binge drinking, if off licences, pubs and clubs actively enforce an "ID" scheme.
But, in my experience, in the main all they only care about is the money in your (under age or not) wallet.
There are only two changes I can see that will help curb binge-drinking: educating children to be responsible, and this also means bringing back a decent form of punishment for offending pupils; and, allowing pubs to remain open longer than 11pm - yes, in the short-term you will see a probable increase in lout-ish behaviour, but in the long-term, then things will change.
It takes time, but unfortunately patience isn't something the Government nor the public have: everything has to be "now, now, now".
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