I was having a problem related with the Billing information when trying to edit an order. It was simply emtpy. I thought that Address Populate was not working but I checked it out and it actually was. Then I realized my problem was I was not showing the Billing Information panel in any Checkout page. In my case I don't need to show it because i am sure that the Billing Information is the address that the user used to register in my site.
I also realized that like this there is no Billing Information profile creation. I would suggest to check first whether Billing Information panel is or not shown in the Checkout page and then just fill the profile created by Commerce or just force the creation of a new one and fill it.