A gradient flow is one of the fundamental objects from a theoretical and practical point of view. For instance, various phenomena are modeled as gradient flows. On the other hand, little is known about the topology of the space of gradient flows. For instance, it is not even known whether the space of gradient flows has non-simply-connected connected components. In this paper, to construct a foundation for describing the possible generic time evolution of gradient flows on surfaces with or without restriction conditions, we study the topology of the space of such flows under the non-existence of creations and annihilations of singular points. In fact, the space of gradient flows has non-contractible connected components.