We've really been talking about EUA for under 5 not full approval.
The three things, EUA, CDC recommendations, and full approval are all very independent.
Nothing stops any area from mandating at any of those stages, but it's really not likely until full approval has occurred. Actually getting full approval is all about the safety and efficacy data. That some group may mandate after full approval will have no impact at all on if full approval happens or not once it's applied for.
The idea to mandate would have more to do with the recommendations than the approval.
EUA and full approval are science and medical decisions. They're concerned with safety and efficacy.
Recommendations and mandates are policy decisions. They're concerned with public health outcomes.
While the policy decisions depend on the science ones, the science ones don't care about the policy. Keeping policy out of the FDA is best.