"It can't. The easiest route for Soyuz to get a 28 inclination orbit, would be for Soyuz to loop around the moon."

I was wrong to say this. I was assuming a change from a 51 degree orbit, but of course it wouldn't be neccesary to start from an orbit, instead if could start from a sub-orbital trajectory and then dogleg to 28 inclination. Normally these types change in inclinations are done at a high point in a trajectory in order to get to GEO- the further from Earth's gravity well the less delta-v needed to change inclinations of the orbit, but changing the inclination of a suborbital trajectory would require less energy than changing an orbital trajectory, so it's a possiblity which is probably much more promising than going around the moon:).