Carb adjustment from float level to idle mix. Then linkage looseness (should be near none at all) and linkage freedom Needs to move with no restriction)
Then governor internals. The main gov bearing is one issue, the weighta and pivot points are another. Jim
 
Probably a lean fuel mixture, either from an improperly adjusted carburetor (most likely), or a manifold vacuum leak.

With the engine surging up and down, SLOWLY pull the choke rod closed. If you find a choke position where the engine smooths out try alternately adjusting the power and idle mixture screws until the engine settles.
 

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