(c) Before declining to grant a license, or granting a conditional or limited license, or suspending or revoking a license, or adopting any other special order, rule or regulation applying only to one or more persons named therein, the commissioner shall hold a special hearing, and afford to the applicant or licensee, or such person or persons, opportunity to appear and be heard with respect thereto. Each such applicant, milk dealer or person may be so heard in person or by attorney, and may offer evidence pertinent to the subject of the hearing, and to that end may request the commissioner to exercise its powers with respect to the compulsory attendance of witnesses and the production of books and records.