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As others have stated, the actual height and width measurements and the specific rim will be a greater determining factor than just the arbitrary 28c or 25c printed on the sidewall.
On a 54cm 2014 CAAD10 I could fit either Conti 28mm 4 Seasons or 25mm GP4K's with Easton R90SL rims, which are 19.5mm internal. Pressure was around 100 psi rear, and they had roughly 3mm clearance all around with SRAM Force and Ultegra 6800 brakes. I think the actual tire measurements were something like 28mm wide and 23mm tall for the 4 Seasons and 28mm wide and 24mm tall on the GP4Ks.
Front had more width clearance, but the height clearance was contingent upon the brake used. Force on my fork sat higher than Ultegra, but I've heard Campy sits lower than both.
Of course, YMMV.
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