Either the emulsion is spread too thickly and is not being exposed and / or developed near the base, or you are not developing long enough.
If you develop longer and the result is foggy, then you can add an antifoggant to the emulsion.
However, these are just two guesses out of a lot of other possible guesses, as I have no idea what your coating conditions are or what the emulsion is. For example, it could be that the coatings are too hard and the developer is not penetrating for that reason, or it could be that there is too much silver for the amount of gelatin present.
I don't even know what developer or time of development you are using.
These are all things to consider when you have a problem like this.
PE