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The bank is charging me a fee to make change at the teller line. Can it do that?

Yes. Federal law allows banks to charge non-interest charges and fees, including deposit account service charges. All fees should be determined on a competitive basis within the market. Each bank should make the decision on the type, amount, and method of calculation based on sound banking judgment and safe and sound banking principles.
National banks are required to disclose any fees associated with their deposit accounts to you when the account is established. So you may want to review your account agreement with the bank as well as any current fee schedule.

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