It may be time to start prosecuting people that carry anything out during an emergency evacuation. A heavy fine (at least) seems a reasonable price to avoid loss of life in future.
People carry their luggage because they know it will take years before they get reimbursed, and often they remain stranded in the foreign city with no passport. You need to ensure there is no incentive to keep your luggage, otherwise people will do it no matter the fine.
So jail time then. People can learn to keep their passports on their persons to avoid jail time for putting it in the carry-on and taking the carry-on.
Prosecuting people for doing that won't actually change anything, because very few people in emergency situations are actually thinking clearly enough to even consider laws in the first place.
Compare to airline seat belts: the reason they always have that demonstration at the start of the flight about them is because there have been cases where people literally forgot how the seatbelt worked in an emergency situation, didn't have the mental coherency available to figure it out again, and kept trying to push at the side of it where the latch release would be in a car.
A better legal approach would be to place limits on carry-on luggage in the first place, so that the physical possibility of delaying evacuations with it is removed.
