So the 99204 is because you hadn't ever seen that dr (or at least not in the last 3 years). The 27786 is for "closed treatment of distal fibular fracture". I know you stated he "touched" your ankle to see if it hurts, then recommended surgery. Since I wasn't in the room I really can't be sure, but he may have read the xray, physically examined your foot by touching it, then made the decision that surgery was required. So technically he did do a closed treatment of the fracture, but that wasn't enough to correct the issue, so he recommended surgery. A summary of the 27786 code: "In this procedure, the provider treats a distal fracture of the fibula, or a break in the end of the fibula bone of the leg, which does not require manipulation.
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If you do not believe he did that description you can call the office and ask. It is possible that the dr intended to do a closed treatment, but then changed his mind to do surgery, but the billing department thought he did the closed reduction and it was billed in error. There is nothing wrong with calling the office to make sure it was billed correctly.