Vt. Stat. Ann. tit. 5, § 1807

A complaint to the Transportation Board may be made against a company subject to supervision under the provisions of this chapter concerning any claimed unlawful act or neglect adversely affecting the complainant, who may be a company or five or more individuals or, if less than five individuals are affected, then any one of them. The complainant may bring his or her complaint directly before the Board or may file his or her complaint with the Agency of Transportation which shall investigate the complaint and if sufficient cause exists, shall prosecute the complaint in the name of the State. Upon request of the trustees of an incorporated village or the selectboard members or city council or upon its own motion, the Agency of Transportation may institute investigations regarding the price, toll, rate, or rental charged by any company.