Here briefly are the steps to use Dry Film, so, read carefully and see if you are doing them all. NB: It could potentially be you are exposing too long, but typically a long development would fix that. Also, I guess it could potentially be that you have a PCB which has been coated in something, if using dry film you need only blank copper PCB not coated in anything,
Step 1: cut piece of film
Step 2: remove protective film from inside-curl
Step 3: adhere to your cleaned blank pcb
Step 4: expose to your artwork
Step 5: remove protective film from top of pcb/film
Step 6: develop in 30 grams Sodium Carbonate per Litre of water for a couple minutes, gently rub with fingers to help
Step 7: inspect board, see that all gunk has been removed, if not GOTO 6
Step 8: put board in etchant,
Step 9: inspect board to see that copper is "pinking", if not GOTO 6
Step 10: continue to etch