In the field of modernised Global Navigation Satellite System (GNSS) signal design, several Dual-frequency Constant Envelope Multiplexing (DCEM) methods have been recently proposed. However, the existing DCEM methods, such as Alternative Binary Offset Carrier (AltBOC), generalised AltBOC and Asymmetric Constant Envelope Binary Offset Carrier (ACE-BOC), are only applied in some special cases. In this paper, we present a unified DCEM design framework for GNSS signals. The existing DCEM methods can be unified in this framework. First, the signal components at two carrier frequencies are combined into two single-frequency constant envelope signals. Then, the linear sum of dual-frequency signals with non-constant envelopes is obtained. Finally, the linear sum is converted into the corresponding DCEM signal by solving an optimisation problem. The proposed design framework has no strict constraints on the number, power ratio and phase relationship of the signal components. Moreover, some special design cases under this framework are also analysed in detail. The analytical results show that the proposed design method can reach higher multiplexing efficiency compared with the existing methods. Based on the proposed method, we suggest a scheme to multiplex the BeiDou regional signals and global signals at the B2 frequency. The simulation results of correlation functions and Power Spectrum Density (PSD) verify the correctness and effectiveness of the proposed design method.