first you want to take the given values in order to compute a percentage!
28,000 / 7,000,000,000 x 100% = 0.0004%
from there then it's a matter of expressing 0.0004% in scientific notation ... in order to do that you want to move the decimal point to the right until you have a number between 1 and 10 ... so this value ends up being
4.0 x 10^(-4)% once put into scientific notation
feel free to reach out if you have any additional questions beyond that! :)