There are various factors affecting surface tension, one of which is that the "composition" of the surface may be different from the bulk. For example, if water is mixed with a tiny amount of surfactants (for example, hand soap), the bulk water may be 99% water molecules and 1% soap molecules, but the topmost surface of the water may be 50% water molecules and 50% soap molecules. In this case, the soap has a large and positive "surface excess". In other examples, the surface excess may be negative: For example, if water is mixed with an inorganic salt like sodium chloride, the surface of the water is on average "less" salty and more pure than the bulk average.