For a max output of 28V the unregulated supply must be about 32VDC. If the max current is 5A and the output is set to a low voltage or is shorted then the series pass device must dissipate 160W!
One 2N3055 transistor is rated at 115W if its case is cooled to 25 degrees C somehow (liquid nitrogen?) but will be extremely hot at only 60W even if it has a huge heatsink.
Think about switching taps on the transformer so that the series pass device does not have a high voltage across it when the output voltage is set to a low voltage. Maybe automatic switching.
Or think about paralleling a few series pass devices to share the heat.