Setting Up Layers in Indesign

Layers could be included in a template. I use a script, you can edit the first line as needed:

var a = ["Background", "Text", "Images", "Page Numbers"]

for (var x in a) {
    makeLayer(app.activeDocument, a[x])
}

/**
* Makes a new named Layer 
* @ param the document to add the layer 
* @ param layer name 
* @ return the new layer 
*/

function makeLayer(d, n){
    if (d.layers.itemByName(n).isValid) {
        return d.layers.itemByName(n);
    } else {
        return d.layers.add({name:n});
    }
}