In considering the problem it is not without significance to observe that the regulations do not contain any provision which purports expressly either to confer upon the holder of a certificate authority to slaughter or treat meat for export or to prohibit the use of establishments for those activities. Regulation 5 merely provides that all establishments used for the slaughtering, treatment and storage of meat, meat products or edible offal for export shall be registered, whilst reg. 6 provides machinery for the issue of certificates of registration. A perusal of the regulations discloses that almost invariably they are not couched in the language of command but rather in the form of specifications, some of which appear to be designed as conditions precedent to the registration of an establishment and others as conditions precedent to the right to obtain an export permit under reg. 91 in respect of meat processed in a registered establishment. In other words, the regulations, in the main, present themselves not as rules of conduct with which the regulations imperatively require compliance, but as the antecedent specification of conditions the fulfilment of which will entitle an applicant to the issue of an export permit at the appropriate time. A few individual regulations, and notably reg. 10, are not couched in language which is appropriate to such an understanding of them, but they are not in question in this case and they are insufficient, I think, to require modification of the general view which I have expressed. The object which the regulations appear to be designed to achieve might have been achieved in other ways. It might have been brought about by a simple prohibition of export except in cases where the commodity had been processed under specified conditions designed to ensure appropriate export standards and this, of course, might have been done without any provision for the registration of slaughtering establishments. But I see very little, if any, difference between such a plan and that which is carried into effect by the regulations. In the main the regulations merely prescribe conditions designed to secure standards of purity, quality and condition at the point of export and these are the conditions which, if observed, will entitle an applicant to an export permit. Again, in the main, the only sanction for the observance of these conditions, including that of registration, is that failure to observe them will or may result in the refusal of such a permit. If this be the correct view of the effect of the regulations then it is quite clear that their provisions were not intended to supersede, pro tanto, all other existing requirements for the establishment of slaughter-houses. Indeed, it clearly appears that when the regulations came into operation there was in existence in South Australia, and no doubt in the other States, legislation providing for the licensing and supervision of abattoirs generally and it should not, in the absence of a clear indication, be inferred that it was the intention of the Commonwealth to over-ride this legislation so far as the slaughtering of stock for export was concerned. If such a result was intended I should have expected the regulations expressly to provide that the holder of a certificate of registration might lawfully engage in that operation. The meaning of reg. 5 is, of course, a critical matter in the case and I am unwilling to recognize it as the cornerstone of a licensing scheme intended to supersede the legislation of the State.