Final answer:
Under the Articles of Confederation, the Congress could create new laws, but the enforcement of these laws depended on the states, which often resulted in the government struggling to keep its agreements due to states choosing whether or not to comply.
Step-by-step explanation:
Under the Articles of Confederation, each state had a great deal of liberty and authority, which meant that although Congress could create new laws, it relied on the states to carry them out. This loose structure led to a situation where the federal government often found it challenging to enforce national agreements, as states could choose whether to comply with Congressional acts or not. The crucial element here is that acts put forward by Congress were non-binding, leaving significant power in the hands of the individual states.
This decentralized framework meant that the government was not always able to keep its agreements, as compliance from the states could not be ensured. The lack of an executive branch or national judiciary under the Articles also meant that Congress was without the mechanisms necessary to enforce its laws or policies effectively.