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Verify correct governor operation first. Stand next to the tractor, have someone else set the throttle a little above low speed, then release the clutch while in gear. The governor must kick the throttle rod; if not, the governor may be not hooked up, misadjusted, wear points dirty, lack of lubrication, etc. Low idle vacuum is usually either: 1) retarded spark
2) wrong carburetor mixture adjustment
3) vacuum leak The first two you can set by the book. To check for a vacuum leak, spray carburetor cleaner at the carb/manifold flange when the engine is at idle. Any change in engine speed or vacuum is a vacuum leak. If the intake manifold was off, do same test at each intake port/head junction. Given that you had the carb apart, be certain that the float level is correct. Also make sure there is no restriction in the fuel line; disconnect it at the carb and you should have a solid, steady flow of gas. If not, there is either a restriction in the line/filter or the vent in the gas cap is plugged.
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