We can do this different ways. One is just to divide.
7/25 = 0.28 = 28%
The other is that percent is always over 100.
7/25 = p/100
Cross multiplying, 25p = 700, so p = 28%.
Or, you may be able to see that since 25(4) = 100, we must multiply 7(4) = 28%.