A catalyst layer for a fuel cell, wherein the catalyst layer comprises a catalyst-supporting carbon and an ionomer; wherein, in a particle size distribution obtained by the laser diffraction/scattering method, the catalyst-supporting carbon has at least two aggregate particle size peaks at less than 1 μm and at 1 μm or more; wherein, when a thickness of the catalyst layer is divided into three equal parts, the catalyst layer has a first region on a gas diffusion layer side, a second region in a middle part, and a third region on an electrolyte membrane side; and wherein a void ratio VG of the first region is 5% or more higher than a void ratio VM of the third region.