I can't get real specific on the 8N, but I can give some general set up directions that will work for most applications.
Sounds like maybe the adjustment is out of range. Before starting, back off the limiter screw. That is not for overspeed, it is to help stop idle surging, but only if necessary.
First, be sure the linkage is correct. There should be a direct link (no spring) from the carb to the governor arm.
With the engine off, and the lever on the dash is pushed to the idle position, the governor spring should be slack and the carb shaft pushed against the idle stop. When the dash lever is pushed to the fast position, the carb shaft should be spring loaded to the full open position. This is a starting point, get this part right before going further.
Here's some theory of operation: The spring on the governor wants to pull the carb plate open. The higher the selected speed (dash lever), the more stretch is applied to the spring, the faster the engine runs.
The spinning balls apply opposite pressure, and try to pull the carb plate closed. It is a simple balancing act between the two forces.
So, on to adjusting the linkage. This is best done with a trusted assistant on the tractor controlling the ignition and starter.
Locate the link between the carb and the governor. Note which way the rod moves to open the throttle, and which way it moves to close the throttle.
Get the engine warmed up, then shut off. Disconnect the link from the carb to the governor, which ever end is convenient. Set the dash lever about mid position. Hold the carb shaft against the idle stop.
Be sure the tractor is in neutral and have the assistant start the engine. The assistant needs to stay on the seat, ready to kill the ignition in case there is a run away!
With the governor disconnected, you are in control of the engine speed, so proceed with caution!
When the governor link was disconnected, it should have sprung to a position that would have opened the throttle. Hold the link up with one hand while controlling the engine speed with the other. Slowly increase the engine speed while feeling and watching the governor link move. At a certain RPM, around 2500 or below, the governor link will hit the end of it's travel. Note that position. Shut off the engine.
The position that the governor link stopped traveling is the length you want when the carb shaft is against the idle stop. In other words, the governor needs to be able to push the carb to the idle stop slightly before it runs out of travel.
This will also prove if the governor is actually working. If you can't get the governor to move as the RPM comes up, it is not working.
Once you get the speed to regulate, adjust the governor spring tension so the engine max RPM is 2200. If it tries to surge at idle, be sure the idle mix is not set too lean. Try adjusting the limit screw to tune it out.
There are also lots of articles and videos on how to do this, if you can't get it working, do some searching. Also an N board below.
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