Special issues usually have a special topic or event associated with them. It can be subject specific, i.e., all articles in the issue are related to "solar cells" or articles from research presented at a particular conference. It could simply be an anniversary issue that coincides with a birthday of a famous researcher, the years of publication, retiring editor in chief, etc. There is no hard and fast rule.
Different journal may put different meaning into "special issue" It could mean that papers have been invited around a certain theme, it could mean papers come from a workshop or symposia, or that the journal have decided to gather papers around a specific topic for some reason. The point is that a special issue differs from a regular issue in that the papers constitute a collection around a theme or coming from a specific group of authors or event. Such issues can either be a decision by the journal or a request from a group of scientists to publish around "their" proposed theme.