What Type of Acne is This? I Cannot Seem to Identify and Treat It. (photo)

They are very tiny bumps too small to squeeze, usually comes in clusters, under the skin, skin-colored, never inflamed/painful/red, never comes to a head, not itchy, gives my skin an "orange peel" look but not rough to the touch, gets worse before period, not an allergy or keratosis pilaris. Is this to be treated topically or internally? I just want them to reach the surface and breakout since they seem to be stuck there for good. Skin type: Combination