The health department has made the recommendation in a
submission to the independent panel that advises on NHS salaries.
The Royal College of Nursing called the suggested rise "pitiful" and said nurses should be getting 12.5% more.
NHS staff have been excluded from a pay freeze for most public sector workers.
The NHS Pay Review Body is due to recommend salary levels for health service staff before early May, before ministers then make a final decision.
In its submission, the health department said awarding NHS staff a "headline" pay increase of more than 1% "would require re-prioritisation".
Health department officials said the Covid pandemic had placed a "huge strain" on NHS finances, whilst the economic outlook "remains uncertain".
They added that this increase was still above the CPI rate of inflation, whilst some staff would see a higher rise under a
previously agreed three-year deal.
Some 1.3 million public sector workers will see a pay freeze next year, while those earning less than £24,000 guaranteed a pay rise of at least £250.