The right answer is C. Congress had the power to make decisions but not to enforce them.
The Articles of Confederation, ratified in 1781, provided only the appearance of national authority. Final power to make and execute laws remained with the states. The Confederation Congress had a number of responsibilities but little authority to carry them out. It had full power over foreign affairs and Indian affairs as well as the western territories. But with no courts and no power to enforce its resolutions and ordinances, having to rely on requisitions from the states, which state legislature could ignore. The Confederation had neither an executive nor a judicial branch; there was no administrative head of government (only the president of Congress, chosen annually), and there were no federal courts.