Why was it difficult to amend the Articles of Confederation?
two-thirds of the delegates in congress had to agree in order to amend the Articles of Confederation
Congress was the chief agency of the government because there was no executive branch. It proved difficult, and often impossible, for congress to put it's policies into effect. Nine of te 13 states had to agree on any law and all 13 had to agree to amend the articles of confederation, but at times they could not all meet.