Although lattice Yang-Mills theory on finite subgraphs of $\mathbb Z^d$ is easy to rigorously define, the construction of a satisfactory continuum theory on $\mathbb R^d$ is a major open problem when $d \geq 3$. Such a theory should in some sense assign a Wilson loop expectation to each suitable finite collection $\mathcal L$ of loops in $\mathbb R^d$. One classical approach is to try to represent this expectation as a sum over surfaces with boundary $\mathcal L$. There are some formal/heuristic ways to make sense of this notion, but they typically yield an ill-defined difference of infinities. In this paper, we show how to make sense of Yang-Mills integrals as surface sums for $d=2$, where the continuum theory is more accessible. Applications include several new explicit calculations, a new combinatorial interpretation of the master field, and a new probabilistic proof of the Makeenko-Migdal equation.