Is your skin oily or dry? Firstly you need to ascertain this in order to determine what the problem is and why you are getting these spots. It could be hormonal in which case you need to consult a doctor (preferably a dermatologist) OR it could be due to a bad skin regime.
Are you cleansing, toning and moisturising everyday? I never used to tone or moisturise a couple of years back and when winter came around I suddenly broke out for NO apparent reason! It was horrible (well really only 3-4 spots but for me it was horrible) and then I realized my mistake- I have dry skin and I wasn't moisturising..hence the breakout. Now Allhamdullilah I don't have these problems.
If your skin is oily you need to be using oil control products as the extra oil on your skin could be causing the spots.
Plus drink TONS of water! Very important! Oh and please don't use soap on your face- you need to be using products designed for your face.
And most importantly, try not to stress about it because the more you stress the worse it will get.