The former Minster for Public Expenditure and Reform said he started discussions on the Lansdowne Road Agreement well before the previous Haddington Road Agreement ceased and called on Fine Gael minister Paschal Donohoe to do the same.
He said public servants must now be presented with a clear pathway to income recovery but said “it can’t only be for those with the sharpest elbows in the public service”.
Mr Howlin said: “It would be a new deal that would dovetail into Lansdowne Road, in the same way as Lansdowne Road was a new deal that dovetailed into Haddington Road.”
However, he cautioned against giving in to the demands of gardaí who have threatened four days strike action next month over pay and conditions.
“Guards are very important, but so are nurses, so are doctors, so are teachers so are local authority road sweepers and everybody else,” said Mr Howlin.
“Everybody must work towards the same pace and that’s why I brought forward the discussions on Lansdowne Road well before the end of Haddington Road and I believe now the minster for public expenditure, my successor should do that.
“I am saying we should begin the next round of income discussion with clear paths of full income recovery.”
Speaking on RTÉ’s This Week programme Mr Howlin also said he favours a repeal of the eighth amendment.