Yes, the Europeans do use the smaller gauge shotguns alot more than we do, but not for slug hunting. In Germany there are laws in regards to what calibers/gauges can be used on different game. The game animals are basically broken down into 2 classes, neiderwild(small game) and hochwild(large game). Small game consists of all the animals that can be shot with shotguns using birdshot and animals that can be shot with small caliber rifles. IIRC, the rifle caliber is smaller than 6.5mm and has to produce more than 1000j of energy at 100m. For the larger game a shotgun slug can be used but like the rifle caliber, it has to be larger than 6.5mm in diameter and it has to produce more than 2000j at 200m. IIRC, joules convert to roughly half of ft/lbs when it comes to energy. So small calibers would need 500ft/lbs of energy at 100m and large calibers would need to have 1000ft/lbs at 200m. Being that the 28ga slugs are larger than 6.5mm would put it in the size class for large game, but it falls short on energy so it is NOT used at all.
*DISCLAIMER* My memory is not what it once was. I may be slightly off with my numbers but not enough to be absolutely wrong about the use of 28ga slugs in Europe.
Don't get me wrong, I want to find some 28ga slugs for my mother, but can't seem to find any at all. I wonder if they can be custom loaded like some of the larger all-brass custom 20ga slug cartridges we see on here. Though, it would be quite a costly venture for just a smoothbore slug gun. That is if you don't spend even more to have a custom barrel made. The German hunting laws are a little different from what we know and expect. It also has it's problems/quirks. A long-action 25-06 can't be used on large game because it's diameter is 6.375mm, but a short-action .260Rem (6.5mm) can be used.
Thanks, Dinny