Remove governance_penalty

[cwgoes]

Closes #3753

• Linked to github-issue with discussion and accepted design OR link to spec that describes this work.
• Wrote tests
• Updated relevant documentation (docs/)
• Added entries in PENDING.md with issue #
• rereviewed Files changed in the github PR explorer

---

For Admin Use:

• Added appropriate labels to PR (ex. wip, ready-for-review, docs)
• Reviewers Assigned
• Squashed all commits, uses message "Merge pull request #XYZ: [title]" (coding standards)

[codecov]

Codecov Report

Merging #3758 into develop will increase coverage by 0.03%.
The diff coverage is 60%.

@@             Coverage Diff             @@
##           develop    #3758      +/-   ##
===========================================
+ Coverage    61.12%   61.16%   +0.03%     
===========================================
  Files          189      189              
  Lines        14054    14048       -6     
===========================================
+ Hits          8591     8592       +1     
+ Misses        4925     4918       -7     
  Partials       538      538

[jackzampolin]

LGTM 👍