Short answer :
"x²= 4" is a conditional equation : "if x= ..... then x²= 4"
" x+y = y+x " is an identity ( unconditionnal equation, true for all possible values of x and y )
in " the set of all x such that x²=4 " the expression " x²=4 " is a rule or a "law" that defines an object, here a set. Same thing in : " the curve ( set of points (x,y) such that x²=4 " ( that is a parabola with vertex (-4, 0) )
As such an expression like this : "x² = 4" is an open sentence. An open sentence as such is not a proposition, it has no truth value. The reason why it does not have a truth vale ( true or false) is that it does not have a complete meaning.
You can produce a true or false statement by completing its meaning in different ways ( using quantification ) .
For all x ( belonging to R) : x² = 4 ( FALSE)
The exists an x ( belonging to R) such that : x² = 4. ( True)
For all x ( belonging to R) : [ x² = 4 iff (x = 2 OR x = -2) ] . ( True)
For all x ( belonging to R) : x² = 4 iff x = 2 . ( False)
For all x (belonging to R) : if x = 2 then x² = 4 . ( True)
For all x ( belonging to R) : x² is not equal to 4. ( False)
When we solve an equation, the implicit context is :
There is (at least) an x such that : x² = 4.
This is not an open sentence: it is a complete sentence and a true one.
Your job is now to find which possible values of the unknown x makes the statement true.
Note : The truth of " there is at least an x such that..." is only presupposed, but sometimes we discover that this presupposition was wrong. Suppose I am given the equation :
x+1 = x
I will reason like this :
(1) if x+1 = x then (x+1) - x = x - x
(2) if (x+1) - x = x - x then 1 = O
(3) but it is false that : 1=0
(4) therefore : It is false that there is an x such that : x+1 = x
Some open sentences, called " identities, are true for all the possible values of their variables. This is the reason why identities are often stated without quantifiers. But rigorously we should write :
For all a & for all b ( belonging to R) : (a+b)² = a² + b²+ 2ab.
To come closer to you question, I think it can be understood in the following way : is x an unknown or a variable?
If the expression " x² = 2 " is considered as an open sentence, x is an unknown, and the question is : what values of x have to be substituted for x to make the open sentence true?
But sometimes, the expression " x²= 4 " can be considered as a sort of "law" defining a set, a law that is supposed to be " always true" for all the elements of a set, and your job is to find which set corresponds to this law. This set can be a set of numbers , or a set of ordered pairs ( a relation, even a function).
For example, I can define a set like this.
S = { x belonging to R | x² = 4 }
The "law" : x² = 4 is , by definition, true of all the elements of S= { -2, 2 }.
I can also say, in coordinate geometry :
T = { (x, y) | x² = 4 }
T is the set of all points ( x,y) such that ( whatever y might be) : x²=4.
You can use a graphing calculator to see which curve this law ( x² = 4 ) defines.
When x is considered as a "law" or a defining formula ( for a set, a relation, a function) x is considered as a variable ( not as an unknown).
Note : you might ask, what about the alledged "law" : x+1 = x. Is it really a law defining an object, since there is no x such that : x+1 = x.
In fact, this law defines an object that is simply : the Empty Set
{ x | x+1 = x }= { }