My comment wasn't directed at you. I've witnessed a lot of stuff like that over the years and a lot of it is from standards developed from manual drafting that illogically carry over to CAD practices. For example, I worked at a place whose drafting standards said all notes have to be in the lower left corner of the sheet. So, in the interest of being able to add new notes with minimal disruption, they also made it standard to start note one at the bottom, note two above that, and so on. When they transitioned to electronic drafting, ridiculously, that practice maintained although it was completely unnecessary and antithetical to ease of use. It contributed nothing but hassle to the process.
You hope that small things actually make sense.
Anyway, as has been suggested, I think you need at least two background sheets - one with the X of Y sheets note and one with just X.