Most of the guys at my location would make use of paper space, but our location on the east coast would write somebody up for doing that. A 200 page set of drawings was 200 individual files, and everything was in model. You could get fired for using an x-ref, and everything, and I do mean everything was on layer zero. Our location had a very different set of "standards" but little was done to enforce them. For instance, dimensions were supposed to be on the "dim" layer, but some of the templates didn't have it. They had a "dime" layer instead. Some of the older drawings had a "dims" layer. We had a bunch of autolisp routines that would look for things on various layers, but half the time the layer name in the routine would be spelled differently from the layer in the template. These routines were on the protected "corporate" drives and only certain people were granted access to these drives. They never had time to fix it, or the usual excuse was that there were more people using them as is than just us we we needed to fix our templates. In the five years I was there, I never talked to anyone at the other locations that didn't complain about the same problem, but the corporate guys would not fix it. Some of the guys that transferred from the east coast location would still put everything on layer zero, but change the color of the individual objects to match the layer they were supposed to be on. In other words, the dimensions would be on layer zero, but would be yellow instead of cyan. The lisps I mentioned would ignore those objects all together.
The east coast location was so **** about their way being the "right" way that they had a lisp routine that they would use any time we sent them a drawing. It would explode all the blocks (I forgot to mention that they hated blocks too), move everything to layer zero, change all the colors to cyan, substitute their title block for ours and delete all the paper space view ports. Someone would then take the time to move all the layouts to individual files.
We had all sorts of standard details and assemblies that you could pull in to start a project and then modify as needed, but they suffered from the same anomalies. In the end, you could wind up with a couple of dozen layers that seemingly had nothing on them, but you couldn't purge them out. If you dug deep enough, sometimes you'd find a tiny line or some other little bitty thing on one of the layers, or maybe not. They'd be buried in a block somewhere.
Where I'm going with all this is to say that if it's been out of control for a long time, it's going to take a very long time indeed to get it under control. Standards can be a two-edged sword. They can make things more efficient and orderly if you are starting from scratch, but they can also slow things down considerably if they are strictly enforced after a time of not having standards. If you bring in an old drawing that is similar to what you're working on now, it can be very time consuming to clean it up and make it conform to the standards. And if you don't get support from any other locations you may have and outsourcers that get used, you'll be pulling your hair out.