Order Address Component Comparison rule not working from Order admin

I use the commerce_order_compare_address rule ("Order address component comparison") to change the tax rate depending on the state. This works great when a customer uses the shopping cart.

It does not work however in the Edit Order admin interface. I'm using the Apply Pricing Rules button (preference in Order Settings) to manually evaluate pricing rules. The Rules log shows that it's the commerce_order_compare_address rule that fails (and true enough, deleting it will apply the tax to all states).

I've broken out the debugger and commerce_order.rules.inc::commerce_order_rules_compare_address() is aborting early because the address fieldnames don't exist on $wrapper. This is because the $order object being passed in is basically empty, with $order_id set to null.

Any thoughts as to why this isn't working?
Thanks!