This case study explores the initial implementation of the EU Water Framework Directive (WFD) in the Lule River basin, Sweden, examining how and to what extent administrative procedures enable learning through dialogue and stakeholder collaboration. Theorising on adaptive co-management and social learning is used to structure what is to be learnt, how and by whom. Qualitative content analyses of policy documents, responses from consultation procedures and interviews show that there are opportunities for stakeholder involvement and dialogue in organizational settings of various kinds, but as the number of affected interest is large and difficult to demarcate many interests lack a formal channel for influence. It is primarily through poorly attended Water Council meetings and during the consultation process prior to decisions on management plans that all affected interests can voice their opinions. Consultation processes represent one-way communication rather than dialogue and the ones examined are strongly focused on scientific rather than experience based knowledge. If language is to be used productively to assist the constitution of relevant knowledge in the implementation of the WFD, it is important to find ways of communication that can serve as a platform for common meaning making among a large number of diverse societal actors.