Lots of Sci-fi rules have bits to cater for 'ogre' sized creatures - be they Ogryns, Tyranid warriors, etc
That might be a good place to start looking? Seems to be that movement can be faster (big steps) or slower (lumbering compared to small skittering folks), the figures are often tougher and/or have multiple wounds. Set your 'human' size to 15mm, swap the scale to cm's, then apply the 'big creature' rules to the 28mm's? (15-18mm to 28mm probably isn't too far off 28mm to 40-50mm 'Ogre' size relationship anyway)
Alternatively, something I was looking at for fantasy games - is multi base the small folks and use them as a single figure in 28mm rules. I was going to have 3x 15mm 'people' (elves, fey, call'em what you will) to a 25mm round base. Would move the same as a 28mm figure, take the same number of wounds/toughness as a 28mm figure (one might sweep of the sword would kill 'em all. Counter the toughness as 'armour' from being harder to hit) but would instead do 3 weak melee or ranged attacks compared to 1 'normal' attack (i.e. if normal attacks wounded on 4+ on a D6, these guys would wound on a 6+). Seemed like a simple solution at the time