References into legal texts are commonly done by specifying the "margin
number" of the paragraph of interest. even the index of a document only
contains references to the margin numbers in the text (no page numbers
etc..).

getting numbering of paragraphs to work is a pain, currently. office tries
to number each block ended by 'return'... even if its a headline which is not
to be numbered in legal texts.

there's plenty of literature out there describing the "standard" way of
numbering and referencing legal texts... word doesn't cater to that scenario
at all (all versions including 12 beta 1).