diff --git a/server/schedulers/balance_region.go b/server/schedulers/balance_region.go
index 9b703ee622a..79dfd904354 100644
--- a/server/schedulers/balance_region.go
+++ b/server/schedulers/balance_region.go
@@ -150,23 +150,34 @@ func (s *balanceRegionScheduler) Schedule(cluster opt.Cluster) []*operator.Opera
 		return stores[i].RegionScore(opts.GetRegionScoreFormulaVersion(), opts.GetHighSpaceRatio(), opts.GetLowSpaceRatio(), iOp, -1) >
 			stores[j].RegionScore(opts.GetRegionScoreFormulaVersion(), opts.GetHighSpaceRatio(), opts.GetLowSpaceRatio(), jOp, -1)
 	})
+
+	var allowBalanceEmptyRegion func(*core.RegionInfo) bool
+
+	switch cluster.(type) {
+	case *schedule.RangeCluster:
+		// allow empty region to be scheduled in range cluster
+		allowBalanceEmptyRegion = func(region *core.RegionInfo) bool { return true }
+	default:
+		allowBalanceEmptyRegion = opt.AllowBalanceEmptyRegion(cluster)
+	}
+
 	for _, plan.source = range stores {
 		retryLimit := s.retryQuota.GetLimit(plan.source)
 		for i := 0; i < retryLimit; i++ {
 			// Priority pick the region that has a pending peer.
 			// Pending region may means the disk is overload, remove the pending region firstly.
-			plan.region = cluster.RandPendingRegion(plan.SourceStoreID(), s.conf.Ranges, opt.HealthAllowPending(cluster), opt.ReplicatedRegion(cluster), opt.AllowBalanceEmptyRegion(cluster))
+			plan.region = cluster.RandPendingRegion(plan.SourceStoreID(), s.conf.Ranges, opt.HealthAllowPending(cluster), opt.ReplicatedRegion(cluster), allowBalanceEmptyRegion)
 			if plan.region == nil {
 				// Then pick the region that has a follower in the source store.
-				plan.region = cluster.RandFollowerRegion(plan.SourceStoreID(), s.conf.Ranges, opt.HealthRegion(cluster), opt.ReplicatedRegion(cluster), opt.AllowBalanceEmptyRegion(cluster))
+				plan.region = cluster.RandFollowerRegion(plan.SourceStoreID(), s.conf.Ranges, opt.HealthRegion(cluster), opt.ReplicatedRegion(cluster), allowBalanceEmptyRegion)
 			}
 			if plan.region == nil {
 				// Then pick the region has the leader in the source store.
-				plan.region = cluster.RandLeaderRegion(plan.SourceStoreID(), s.conf.Ranges, opt.HealthRegion(cluster), opt.ReplicatedRegion(cluster), opt.AllowBalanceEmptyRegion(cluster))
+				plan.region = cluster.RandLeaderRegion(plan.SourceStoreID(), s.conf.Ranges, opt.HealthRegion(cluster), opt.ReplicatedRegion(cluster), allowBalanceEmptyRegion)
 			}
 			if plan.region == nil {
 				// Finally pick learner.
-				plan.region = cluster.RandLearnerRegion(plan.SourceStoreID(), s.conf.Ranges, opt.HealthRegion(cluster), opt.ReplicatedRegion(cluster), opt.AllowBalanceEmptyRegion(cluster))
+				plan.region = cluster.RandLearnerRegion(plan.SourceStoreID(), s.conf.Ranges, opt.HealthRegion(cluster), opt.ReplicatedRegion(cluster), allowBalanceEmptyRegion)
 			}
 			if plan.region == nil {
 				schedulerCounter.WithLabelValues(s.GetName(), "no-region").Inc()
diff --git a/server/schedulers/balance_test.go b/server/schedulers/balance_test.go
index 56b597cc2d4..9d9dfd2720d 100644
--- a/server/schedulers/balance_test.go
+++ b/server/schedulers/balance_test.go
@@ -1052,28 +1052,29 @@ func (s *testRandomMergeSchedulerSuite) TestMerge(c *C) {
 	c.Assert(mb.IsScheduleAllowed(tc), IsFalse)
 }
 
-var _ = Suite(&testScatterRangeLeaderSuite{})
+var _ = Suite(&testScatterRangeSuite{})
 
-type testScatterRangeLeaderSuite struct {
+type testScatterRangeSuite struct {
 	ctx    context.Context
 	cancel context.CancelFunc
 }
 
-func (s *testScatterRangeLeaderSuite) SetUpSuite(c *C) {
+func (s *testScatterRangeSuite) SetUpSuite(c *C) {
 	s.ctx, s.cancel = context.WithCancel(context.Background())
 }
 
-func (s *testScatterRangeLeaderSuite) TearDownSuite(c *C) {
+func (s *testScatterRangeSuite) TearDownSuite(c *C) {
 	s.cancel()
 }
 
-func (s *testScatterRangeLeaderSuite) TestBalance(c *C) {
+func (s *testScatterRangeSuite) TestBalance(c *C) {
 	opt := config.NewTestOptions()
 	// TODO: enable palcementrules
 	opt.SetPlacementRuleEnabled(false)
 	tc := mockcluster.NewCluster(s.ctx, opt)
 	tc.DisableFeature(versioninfo.JointConsensus)
-	tc.SetTolerantSizeRatio(2.5)
+	// range cluster use a special tolerant ratio, cluster opt take no impact
+	tc.SetTolerantSizeRatio(10000)
 	// Add stores 1,2,3,4,5.
 	tc.AddRegionStore(1, 0)
 	tc.AddRegionStore(2, 0)
@@ -1098,17 +1099,16 @@ func (s *testScatterRangeLeaderSuite) TestBalance(c *C) {
 		})
 		id += 4
 	}
-	// empty case
+	// empty region case
 	regions[49].EndKey = []byte("")
 	for _, meta := range regions {
 		leader := rand.Intn(4) % 3
 		regionInfo := core.NewRegionInfo(
 			meta,
 			meta.Peers[leader],
-			core.SetApproximateKeys(96),
-			core.SetApproximateSize(96),
+			core.SetApproximateKeys(1),
+			core.SetApproximateSize(1),
 		)
-
 		tc.Regions.SetRegion(regionInfo)
 	}
 	for i := 0; i < 100; i++ {
@@ -1132,7 +1132,7 @@ func (s *testScatterRangeLeaderSuite) TestBalance(c *C) {
 	}
 }
 
-func (s *testScatterRangeLeaderSuite) TestBalanceLeaderLimit(c *C) {
+func (s *testScatterRangeSuite) TestBalanceLeaderLimit(c *C) {
 	opt := config.NewTestOptions()
 	opt.SetPlacementRuleEnabled(false)
 	tc := mockcluster.NewCluster(s.ctx, opt)
@@ -1163,7 +1163,6 @@ func (s *testScatterRangeLeaderSuite) TestBalanceLeaderLimit(c *C) {
 		id += 4
 	}
 
-	// empty case
 	regions[49].EndKey = []byte("")
 	for _, meta := range regions {
 		leader := rand.Intn(4) % 3
@@ -1208,7 +1207,7 @@ func (s *testScatterRangeLeaderSuite) TestBalanceLeaderLimit(c *C) {
 	c.Check(maxLeaderCount-minLeaderCount, Greater, 10)
 }
 
-func (s *testScatterRangeLeaderSuite) TestConcurrencyUpdateConfig(c *C) {
+func (s *testScatterRangeSuite) TestConcurrencyUpdateConfig(c *C) {
 	opt := config.NewTestOptions()
 	tc := mockcluster.NewCluster(s.ctx, opt)
 	oc := schedule.NewOperatorController(s.ctx, nil, nil)
@@ -1234,7 +1233,7 @@ func (s *testScatterRangeLeaderSuite) TestConcurrencyUpdateConfig(c *C) {
 	ch <- struct{}{}
 }
 
-func (s *testScatterRangeLeaderSuite) TestBalanceWhenRegionNotHeartbeat(c *C) {
+func (s *testScatterRangeSuite) TestBalanceWhenRegionNotHeartbeat(c *C) {
 	opt := config.NewTestOptions()
 	tc := mockcluster.NewCluster(s.ctx, opt)
 	// Add stores 1,2,3.
diff --git a/server/schedulers/utils.go b/server/schedulers/utils.go
index 21f8d3fa378..ab3b88ae786 100644
--- a/server/schedulers/utils.go
+++ b/server/schedulers/utils.go
@@ -23,6 +23,7 @@ import (
 	"github.com/tikv/pd/pkg/errs"
 	"github.com/tikv/pd/pkg/typeutil"
 	"github.com/tikv/pd/server/core"
+	"github.com/tikv/pd/server/schedule"
 	"github.com/tikv/pd/server/schedule/operator"
 	"github.com/tikv/pd/server/schedule/opt"
 	"github.com/tikv/pd/server/statistics"
@@ -133,7 +134,14 @@ func (p *balancePlan) getTolerantResource() int64 {
 }
 
 func adjustTolerantRatio(cluster opt.Cluster, kind core.ScheduleKind) float64 {
-	tolerantSizeRatio := cluster.GetOpts().GetTolerantSizeRatio()
+	var tolerantSizeRatio float64
+	switch c := cluster.(type) {
+	case *schedule.RangeCluster:
+		// range cluster use a separate configuration
+		tolerantSizeRatio = c.GetTolerantSizeRatio()
+	default:
+		tolerantSizeRatio = cluster.GetOpts().GetTolerantSizeRatio()
+	}
 	if kind.Resource == core.LeaderKind && kind.Policy == core.ByCount {
 		if tolerantSizeRatio == 0 {
 			return leaderTolerantSizeRatio