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Sounds like a fuel starvation problem, not the governor. To verify, run the tractor and when begins surging slowly pull out the choke. If you find a spot where the surging stops, fuel starvation is the problem. Presuming that�s what you find, first disconnect the fuel line at the carburetor. Fuel should flow in a steady stream about the diameter of a pencil. However if fuel just dribbles out, look for a plugged sediment bulb, junk in the tank covering the fuel outlet, or a dented/kinked fuel line. If you find good flow to the carburetor then you need to go inside the carb. Look for a bit of junk clogging the float needle valve, the float height set too low or the float not moving freely (ie. hanging up from rubbing the inside of the bowl casting). Also if the carb has a screen inside the fuel inlet it must be free of any debris. Also while you�re inside the carburetor double check the idle metering passages are not somehow plugged.
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