If they hadn't shown the person who was feeding rats to the walkers as being inside the prison fences, I absolutely would have had the Governor pegged as the person doing it. His army was no more, so he couldn't just come straight at them and attack. Instead, lead the walkers to the prison, keep adding to the numbers, and hope the walkers would become too much and overrun them.
And just to keep the walkers interested, feed them rats through the fence. But since he doesn't have access to inside of the fence, well, we still have no clue who the hell that actually was who was feeding them. There are theories, but nothing concrete one way or the other.
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