Release v1.28.0

[chewong]

What type of PR is this?

Uncomment only one, leave it on its own line:

/kind api-change /kind bug /kind cleanup /kind design /kind documentation /kind failing-test /kind feature /kind flake

What this PR does / why we need it:

Release v1.28.0. I will cherry-pick this to release-1.28 branch after it's merged.

Which issue(s) this PR fixes:

Fixes #

Special notes for your reviewer:

Does this PR introduce a user-facing change?:

NONE

[k8s-ci-robot]

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[dims]

/approve /lgtm

[k8s-ci-robot]

[APPROVALNOTIFIER] This PR is APPROVED

This pull-request has been approved by: dims

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