When the Bill of Lading Act was originally introduced, the legislators never envisioned the concept of the brokerage industry. Simply stated, the purpose of the Act was afford the consignee the same rights and obligations as if he were the shipper (consignor). This was necessary because the BOL had only been signed between the consignor and the carrier. The Act drew the consignee into the BOL and its related condition even though they were not a signing party to the contract (BOL).
Here's the actual clause.......
"2. Every consignee of goods named in a bill of lading, and every endorsee of a bill of lading to whom the property in the goods therein mentioned passes on or by reason of the consignment or endorsement, has and is vested with all rights of action and is subject to all liabilities in respect of those goods as if the contract contained in the bill of lading had been made with himself."
Clause 3 reads
3. Nothing in this Act prejudices or affects
(a) any right of stoppage in transit;
(b) any right of an unpaid vendor under the Civil Code of the Province of Quebec;
(c) any right to claim freight against the original shipper or owner; or
(d) any liability of the consignee or endorsee by reason or in consequence of his being the consignee or endorsee, or of his receipt of the goods by reason or in consequence of the consignment or endorsement."
So from an unpaid freight charge standpoint, the BOL Act only applies to to "prepaid" shipments where the shipper has not paid the carrier. The consignee is then liable for payment per Clause 2 above. Use of the BOL Act to try and get a shipper or consignee to pay the carrier when there was a defaulting broker involved, is not how the Act reads.
Can Clause 3(c) be effective in collecting from the shipper; possibly, but if the shipper (or consignee) has already paid the broker, it's then a toss up. Also note that in Quebec, if a party has already paid the freight charges to someone, the Quebec Civil Code prohibits a different party from seeking payment again.