I am reading Enderton Elements of set theory and something keeps bothering me. At the start he defines the axioms in terms of the symbols $$\forall, \exists, \in, \neg, \&, \text{ or }, \iff.$$ Then he goes on to define functions as specific types of set. However, it feels to me that the axioms and the theorems are sentences in some kind of formal language. And to evaluate the truth of a statement, means to define an interpretation of the statement in the 2 element set $$S:= \{\text{true, false}\}.$$ For instance, $$x\iff y$$ derives a function on the set $S$ such that $$\left((x\iff y)_S = \text{ false}\right)\text{ iff } \left(x_S = \text{ true and } y_S = \text{ false}\right).$$ My issue is how can this be if you need the axioms to define functions in the first place. It feels like the foundations of mathematics are self referential?
I appreciate my question is perhaps unclear, but I feel my understanding is too limited to ask a more precise question at this stage.