PayPal doesn't offer an option to supply a Billing address, only shipping (even all the fields submitted to PayPal are actually named 'SHIPPING_xxxxxx', indicating that is their intended purpose). Granted, in some cases PayPal will sometimes USE the shipping address AS THOUGH it's a billing address by pre-populating the billing address with those shipping-address details, but that's not what everyone wants either.
Until PayPal offers the option to submit BOTH billing AND shipping addresses, the issue is, well, complicated. Suggestions can be made to PayPal at paypal.com
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