Abstract: The non-optimal tourism district is the area where resources are poor, economy is backward, location is not ideal and tourism development conditions are poor. The tourism development of non-optimal district should make full use of the local advantage resources to build brand image, realize the differential positioning and feature development. On the basis of the relevant theoretical research, the evaluation system of tourism non-optimal district was constructed from three aspects: tourism resources congenital conditions, regional economic environment and the development performance of tourism industry factors. Through the evaluation of 17 cities in Shandong province, delimit the scope of the Shandong provincial tourism non-optimal areas and non-optimal factors, and then take Binzhou city as an example to explore the underdeveloped and non-optimal resource district’s development strategy that moderate development, rolling development, product innovation and image strategy.