First thing, it probably depends on your size. If you’re 130 go with the 25s. If you’re 225, go with the 28s.
Second. 28mm tires on 17mm / 25mm rims won’t lightbulb that much and they won’t squirm. Plenty of folks have ridden that size tire on narrower rims and done so hard. I’m one of them. IIRC Mavic Open Pros were 15mm / 19mm internal/external and I rode those during early season crits and down technical stuff all day long on. My current early-season crit wheels are H+Son Archetypes which are 17mm / 23mm. At 165lb I’m racing 28mm GP5000s on them (not tubeless though) with 65/70 psi
Third, I’ve been told that aero is all the things. 28mm tires on a 25mm rim will not be as aero-awesome as 25mm tires on 25mm rims. 23mm tires on 25mm rims will be even more aero-awesome. (See Josh Portner’s 105% Rule)
Fourth, I like bigger contact patches and lower tire pressure around corners with crappy tarmac. Same thing goes when descending technical stuff.