A complaint that a railway company is not fulfilling its service obligations in whole or in part may be made by a shipper, that is, a person who sends or receives goods by railway or intends to do so.

The Agency has the power to combine two or more complaints from different shippers and to deal with them as a single proceeding. Where several shippers initiate complaints which raise a common issue, the Agency may combine a portion of the proceedings, if it determines that this would be more efficient. Each shipper will be required, however to present evidence regarding its specific circumstances.