I’m wondering exactly what you mean by "Surge"? If you mean the motor all of a sudden revs higher, is it pushing the boat faster? If not, the propeller may be slipping on it’s rubber-mounted hub? When the RPMs "surge" faster, is it still pushing the boat?….or just revving higher while the boat slows down? If it’s actually pushing the boat faster when it surges, then, I’d check all the stuff others have mentioned. Another thought – maybe you have one cylinder dead until you get to higher speeds and then it kicks in and out? If so, look for something intermittent in the ignition.
Dave