CMS has made this issue explicitely clear. I do not have a link to provide you, but trust the statement has been made:
When patients present for Flu shots (only), then the charges should reflect those services (administration/vaccine code/HCPCs).
To my knowledge, that has not changed. Look at it this way, the nurse is doing nothing in addition to administering that vaccine. With that being the case, it's hard to argue a 99211 as appropriate.
Of course, as with every aspect of coding, some payers may have requirements unique to their members. Let that--upon written support--guide your code selection also.
I'm sure that searching the CMS website will yield a specific directive.
Good luck to you.
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