The number of unique 5x5 grids is 33,554,432 (2^25) and the number if you ignore rotation or reflection is 4,211,744. What is 28,781,820?
(I wrote a program to calculate this by generating all 2^25 puzzles and their clues, then sorting by the clues. I also verified the count of 25,309,575 clues with unique solutions.)