Probably the underlying soils are weak and/or unstable. The thick "plastic" is most likely a geotextile fabric which helps to bridge soft spots and prevent uneven settlement. The thick base rock layer is also a way to strengthen the pavement structure and will be topped with a wearing course of either asphaltic concrete or Portland cement concrete.
You can learn more about geotextiles and their many uses in road work and other engineering applications. Try searching the web using "geotextile" or visit web pages for companys that make them such as Monsanto, Amoco and 3M.
Russ Faust