In this article, we propose a two-level dynamic spectrum allocation and sharing (DSAS) technique to address both spectrum liberalization and spectrum flexibility for more progressive spectrum management so as to improve the countrywide spectrum utilization of the 28-GHz millimeter-wave (mmWave). More specifically, to liberalize allocating countrywide spectrum to MNOs, in level 1 (i.e., primary) spectrum allocation (PSA), each mobile network operator (MNO) is assigned with an amount of 28-GHz spectrum corresponding to its number of subscribers for a certain spectrum renewal term, whereas, to exploit spectrum flexibility, in level 2 (i.e., secondary) spectrum sharing (SSS), when no user equipment is present inside the building, the allocated spectrum to an MNO in PSA is allowed to share with small cells of another MNO in a building. We estimate the amount of spectrum for each MNO in both PSA and SSS. We derive system-level average capacity, spectral efficiency (SE), energy efficiency (EE), and cost efficiency (CE) for the proposed DSAS technique, as well as the traditional static licensed spectrum access (SLSA) technique as a baseline. In addition, we discuss the implementation perspectives of DSAS. With numerical and simulation studies on an arbitrary country with four MNOs, we evaluate and then compare the performances of both the proposed DSAS technique and the SLSA technique. It is shown that the DSAS technique can improve both the capacity and the SE by 204.78%, whereas the EE and the CE by 67.19%, over that of the SLSA technique. Finally, we show that, by applying the DSAS technique, the prospective requirements of SE and EE for sixth-generation (6G) networks can be achieved by reusing the 28-GHz spectrum to 64.86% fewer buildings of small cells than that required by the SLSA technique.