Kubota ZD28 - Sometimes Starts, Sometimes Not - Starter?:
Check the path from the switch to the solenoid. If it isn't getting enough voltage to the coil they can click and throw the gear but not have enough to pull it far enough to make contact. Easiest way to check this is jump from the positive terminal to the solenoid. If it pulls in good that way then you need to check the start circuit. Possibly a bad safety switch or key switch. Another way to check it to hook up a battery charger and see what it does then. If it is a high resistance connection or switch somewhere the added voltage from the battery charger might overcome it.
e: Kubota ZD28 - Sometimes Starts, Sometimes Not - Starter?
http://www.bobistheoilguy.com/forums/ubbthreads.php/topics/3204197/Kubota_starter_problem??
I had the same problem with a john deere 318. It would just click but if I hit it enough it might go some times but would always work if it was jumped. I replaced all the safety switches but it still didn't fix it. Then I found that john deere made a fix. They made a relay kit that pulled in the really from the power from the battery cable. Fixed the problem completely.