If you want to control mass emailing you can reduce the number of recipients per message.
And create groups for each department and give send permission only to group members/required members.
Set-mailbox Set-Mailbox -Identity Testmailbox -recipientlimits 20
This command will limit the number of recipients per message to 20 for Testmailbox.
Get-Mailbox -database Database1 | set-mailbox -recipientlimits 20
This will limit the recipients per message to 20 for all mailboxes in the database1.
Get-Mailbox | set-mailbox -recipientlimits 20
This will limit the entire organization.
Create groups
https://technet.microsoft.com/en-us/library/bb124513(v=exchg.150).aspx
Control sending permission to groups. Check the delivery management section in the below URL
https://technet.microsoft.com/en-us/library/bb124513(v=exchg.150).aspx#deliverymanagement