As I mentioned universality means that it applies to all sizes, all sectors, and all employees.
For non-unionized, you're right to say that if it's a non-unionized enterprise it is different from an enterprise where some employees are non-unionized and some are unionized because in the pay equity committee all employees must be represented, even if they are non-unionized.
In a non-unionized setting, especially in small enterprises where you find many immigrants and many visible minorities, it's a problem to reach them and to make sure the act is being complied with.
The pay equity commission of Quebec is now doing some work, and I'm invited to comment on this next week to see if this would be an efficient way of reaching non-unionized employees.
I don't know if this answers your question.