Bert Combs, 80, was found dead near his home in Rosslyn, Ky., early yesterday. A Democrat elected Kentucky governor in 1959, Mr. Combs attracted wide attention when he issued an executive order banning racial bias in hiring or serving customers by state-regulated firms in June 1963, a few days after Alabama Gov. George C. Wallace unsucessfully tried to block blacks students from enrolling in the University of Alabama. Police said Mr. Combs may have died of hypothermia after a traffic accident; his body was found on the banks of the rain-swollen Red River, 200 yards from his partly submerged car and four miles from his mountain cabin.