$x=1$ is not a proposition because if $x$ is zero it is false and if $x$ is one it is true. Such a formula is called an open formula.
Then, are all closed formulas—formulas without free variables—propositions?
I think that $\forall x \in \mathbb{R} (x=1)$ is a proposition, because it has a truth value False. On the other hand, the closed formula $\forall x (x=1)$ contains a quantification without range: it is true on $\{1\}$ and false on $\{0\}.$
Therefore, not all closed formulas are propositions, right?
∀x(x=1)
depends on the universe of discourse, which is an aspect of the interpretation. Another example: the proposition "the square of every number is nonnegative" is true in $\mathbb R$ and false in $\mathbb C.$ To sum $\endgroup$