The expression $x+y=y+x$ is not a declarative statement that is either true or false. It becomes one (that happens to be true) if you insert specific real numbers for $x$ and $y$ (e.g., $3+\pi=\pi+3$), but as it stands, the symbols $x$ and $y$ do not represent specific real numbers. You might as well write $\square+\triangle=\triangle+\square$, with the understanding that the square and triangular boxes are ‘containers’ waiting to be filled with specific numbers.
You might suppose that it asserts that $x+y$ and $y+x$ are equal no matter what numbers you substitute for $x$ and $y$, but this isn’t how the notation works. If that’s what you want to say, you have to express the no matter what part explicitly:
$$\forall x\,\forall y\,(x+y=y+x)\;,$$
or
for all real numbers $x$ and $y$, $x+y=y+x$.
This potential confusion arises because people, including writers of textbooks, are sometimes sloppy and omit the quantifying expression ($\forall x\,\forall y$ or for all real numbers $x$ and $y$) when they think that it can be reasonably understood from context.