The general Christian-church culture (and myths) of the US clouds our understanding when we read Romans 13 from the perspective of an American: saying that national governmental powers are necessarily good people for God's purpose.
I doubt few of us, however, would argue that the government over a North Korean, an Iranian, or a Chinese believer is actually "a terror to evil works" and "God’s minister to you for good".
God can establish the basest of men to rule over people, evil men to rule over people, and corrupt men to rule over people because of the corruption of their own hearts. God can allow the people to choose their own leaders apart from Him (motions broadly at a democratic republic) as judgment upon themselves.
This portion of scripture actually deals with leadership among the saints. Evidence of this can be found in the epistles where the apostles command the saints to do various things in accordance with God's plan. Paul does this. Peter, John, Timothy, and Silvanus, too. That is why such care is given when acknowledging elders among the people of God and the instruction to not lay hands on anyone quickly, a sign of commission and empowerment from the greater to the lesser.