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Don't exclude possibility of an electrical/ignition problem. Not saying that's the answer, but electrical can cause your symptoms, so you should look closer before doing major work on carb and governor. My experience with similar surge problem turned out to be electrical, not carb as I had originally thought. I had done 'everything' but only made things slightly better, never fixed the problem fully...I finally put it down to old age and wear. Finally, an 85+ year old retired tractor mechanic who was welding an implement for me says--"When you gonna get your tractor running on all cylinders? What do you mean you can't hear that?" Well, he started pulling off the plug wires one-by-one as the tractor was running and sure enough the last cylinder he pulls didn't make any difference--no spark. It was running only on 3, and making that surging you're talking about. Long story short, after asking me some questions, he tells me the problem was with the distributor, and specifically the points. Turns out he was right: the cam was off-center, so the point gap was not consistent thru its rotation... the gap at the closest point was too small and had arced closed, so that cylinder never fired. I replaced the points, gapped them to the 'average' so they all open and close within tolerance and the surge is gone and the tractor runs like it probably hasn't in years...I can accelerate up my big hills in 3d gear while bushogging when before I could barely make it up them in 1st. Point is: don't settle too soon on fuel system, it could very well be something odd with electrical. good luck!
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