Surging is almost always caused by a too lean mixture, be it a simple adjustment, a clogged passage, or vacuum leak.
All the governor wants to do is hold the selected RPM, it doesn't think about what it's doing, it just modulates the throttle plate position.
See if a partial choke will stop the surging. If so try adjusting the idle mix. If it doesn't help or has no effect, there is likely a clogged passage in the carb.
If this is a Holley carb, consider trading it for a rebuilt Zenith or MS, whatever the alternative was for that model. The Holleys were very troublesome on those.
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Today's Featured Article - It's Alright Where It Is! - by Anthony West. I have a tale of a different kind to tell. Whilst rooting in the hedge bottoms this week I had cause to visit Chapel lane Farm, the home of an eccentric gentleman by the name of Austin Kendall. I had heard rumours that an old Case Model C was languishing away in the back of one of the outbuildings there. So off I went in search of what would turn out to be a very rare and unusual tractor. Mr Kendall is an excitable chap to say the least. He is amongst the last of a dying breed of farmer who
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