Essentially, the 2600 gives the programmer 2 sprites only. One sprite is dedicated to drawing the Pac-Man main character, while the other takes the role of all four ghosts. That's right, simultaneously 1 sprite for 4 distinct ghosts, wherever they are on the screen.
This singular sprite and the practice of "racing the beam" leads to a lot of flickering. I believe that the flickering is so severe that it impacts the collision detection, so that Pac-Man can slide right through a ghost in the right place and time.
I owned a copy, of course, and it was just so sad to compare it with its daddy in the arcade cabinet. However, once Ms. Pac-Man rolled around, they had learned a lot of lessons, and made that one a rousing technical success.