I'd say so. It took me two years before I could play in public. I've been learning for six years now and am in a Grade Three band (in bagpipes, grades go from four to one, and it is expected my band shall move up to Grade Two soon). Basically the trouble in learning is that while the bagpipe range is quite simple (one octave plus one in the key of D major), a lot of coordination is necessary in that you need to apply constant pressure from your arm onto the bag balanced with the air exerted into the bag, along with actually playing.
Some people would consider it to be simple, and to a large extent it is, but given the amount of energy that goes into playing it I would say it is a difficult instrument. Though very rewarding, especially if you're in a decent band, which I am lucky enough to be (I've played with John Farnham at the ARIAs, but the band has also played with Paul McCartney, AC/DC etc).