Or unto governors, as unto them that are sent by him for the punishment of evildoers, and for the praise of them that do well.
Governors - subordinate to the emperor; delegated by Caesar to preside over provinces.
For the punishment. No tyranny ever has been so unprincipled that some equity was not maintained in it: however corrupt a government be, God never suffers it to be so much so as not to be better than anarchy (Calvin). Although bad kings often oppress, yet that is scarcely ever done by public authority (and it is of public authority that Peter speaks), except under the mask of right. Tyranny harasses many, but anarchy overwhelms the whole state (Horneius). The only justifiable exception is where obedience to the earthly king involves disobedience to the King of kings.
Praise of them that do well. Every government recognizes the excellence of Christian subjects. Thus Pliny, in his letter to the Emperor Trajan: 'I have found in them nothing else except a perverse and extravagant superstition.' This recognition in the long run mitigates persecution (1 Peter 3:13).