A membrane electrode assembly includes a membrane, an anode catalyst layer and a cathode catalyst layer. The anode catalyst layer is on a first side of the membrane and the cathode catalyst layer is on a second side of the membrane, wherein the second side of the membrane is opposite the first side of the membrane along a first axis. The cathode catalyst layer includes agglomerates formed of a catalyst support supporting catalyst particles, an agglomerate ionomer and an inter-agglomerate ionomer. The agglomerate ionomer surrounds the agglomerates and the inter-agglomerate ionomer is in regions between the agglomerates surrounded by the agglomerate ionomer. The agglomerate ionomer is different than the inter-agglomerate. Methods to produce the catalyst layer are also provided.