Where is the line? One could equally then argue use the number working on only the one construction site. Eventually a point can be reached where 1 death may "seem" improbable. A wider view reveals a context people seem to have missed.
The line is whatever level is being overseen by the official. If someone gets burned at a Dunkin’ Donuts, first would be the manager of that Dunkin’, then the regional manager, and then eventually the CMO. Maybe the CMO deals with reports of burns in a spreadsheet, because they see so many. For this case, you’ve misaligned a World Cup employee with the purview of the leader of the country. The number of migrant worker deaths in Qatar is not their concern, but the number of deaths of migrants working on the World Cup is.