2321Selma
Sounds ominously like base failure to me. There are a number of possibilities as to the cause of the problem; poor subgrade, deficient structure, etc. I have seen similar problems in residential developments. The bulk of the heavy loadings (outside bus routes) commonly occur in the first few years during house construction. Exacerbating the problem is that, in some jurisdictions, a staged pavement is required on newly constructed roads. So the full structure is not yet present during the most severe loading conditions.
Unless the ACP mix and/or compaction/lay-down properties are grossly substandard, I would be less inclined to focus on this component of the road structure. I agree with others that proof rolling is a valuable tool during construction. It is cautioned, however, that proof rolling be accompanied with soil testing to ensure that adequate moisture is present. (I have seen excessively dry, crusty subgrade proof-rolled with great results only to have it turn to crap when subject to moisture increase).
At this point, I would consider deflection testing the road using Benkelman Beam, Dynaflect,etc... From this, an overlay can be designed and applied if required. Total failure areas will require removal. The best method of reparing these areas will depend upon the conditions exposed.