TFA - how to setup fallback options 'per user'

I have installed TFA and TFA Basic Plugins, and this is basically working.  But... fallback options are not working.  When a user cannot access the code to authenticate there is no option to access the fallback - whether that fallback is recovery codes or email.   At the site wide level I have set both fallback options, but nothing is available for a user to access these when they can't access their authentication device.    From a chat with AI, it seems that the problem is these fallback options need to be set 'per user' but I don't see how to do that.  Can anyone help?