Separating arrangement for record keeping and classification for records management

In the custodial era, we classified records - we had a file number, and we had a system in which we recorded the classification of the file.

In the post-custodial era, we arrange them - we provide people with a folder arrangement, and expect them to keep records in it. The arrangement and the classification are the same.

The result?

Records systems that people can't understand, and refuse to use.

I've never seen a records system that doesn't allow the separation of classification and arrangement.

I almost never see one that separates them.

We are a discipline that is all about evidence.

We have masses of evidence that trying to get people to keep records arranged for our work fails.

We also have masses of evidence of two other points -

1. That when people are given a system arranged to support their work, they will happily embed it and use it.

2. That when people are not given a system that is arranged to support their work, they'll create a huge mess.

How can we justify continuing to combine arrangement and classification with with all the evidence against it?