Brian:

"the Bill to (from an industry perspective) is the person" I'm assuming you mean the shipping industry but then they are not the users of Order Entry and 'Bill-to' needs to work based upon who the user is billing, their customer. not who the common carrier is billing for their services.

Consignee is the Ship-to

If the shipping bill is to be sent to a third party, wouldn't this be better managed in the shippers software?