The Gov worked well because he had two sides to his character. They were able to tell a story using his false 'good' side in the community and then turn that to show his evil side.
plus they didn't have like 4-5 plots going on at once. you saw either the prison or the Gov's place. each week you saw one of either. you were invested in the story.
you had Andrea but she was part of the Gov's plot. you had Michonne but she was part of the Prison Plot
Imagine if in season 3 you had Andrea having her own plot dealing with a new community that has nothing to do with the Gov and imagine you had Michonne having her own plot dealing with living in the forest by herself and encountering some crazy people.............. imagine 4 plots going back and forth