In the context of the Articles of Confederation, 'difficult' refers to the substantial challenges and obstacles that arose from the weaknesses inherent in this early form of American government. These difficulties included issues related to governance, economic stability, and inter-state relations, which hindered the effectiveness of the national government and led to widespread calls for reform. The lack of a strong central authority made it hard for the government to enforce laws or collect taxes, creating a chaotic political environment that ultimately necessitated a shift towards a more robust federal system.