Disabled Korobeinikov appealed to the employment center

Disabled Korobeynikov applied to the employment center to register as unemployed. However, the public institution of the employment service refused to recognize him as unemployed, because they were not presented with an individual rehabilitation program.
Korobeinikov appealed to the district prosecutor´s office with a complaint about the actions of the center, referring to the instruction of the Federal Employment Service of the Russian Federation of 02.02.1996, "On the recognition of disabled people unemployed." This act is established. As for the development by the State Service for Medical and Social Expertise of an individual program for the rehabilitation of a disabled person, the decision to recognize as unemployed citizens who partially lost the ability to regular professional work can be taken without presenting an individual program for the rehabilitation of a disabled person. Korobeinikov also pointed out that not one of the grounds for refusing to recognize a person as unemployed is provided for by the legislation on employment.
Appreciate the arguments of Korobeinikov. What are the powers of federal executive bodies to adopt normative legal acts in the field of employment?