Scenario:
The Bill in Advance of Receipt Accounting Preference allows users to bill Purchase Orders before receiving them.
If this preference is disabled, the Bill button is not available if there is no Quantity Received available for billing. However, when you have received an Item and proceed to billing it, the Vendor Bill allows you to change the Quantity column as it is editable.
Solution
Upon checking, the ability to disallow bill quantity to be greater than the total quantity received even if the Bill in Advance of Receipt Accounting Preference is disabled is a system limitation.
It is currently logged as Enhancement 208876 Transactions > Purchases/Vendors > Bill Purchase Orders. System preference to disallow bill quantity to be greater than the total quantity received.