A light-modulating cell includes: a pair of polarizing plates (a first polarizing plate and a second polarizing plate); a pair of electrodes (a first transparent electrode and a second transparent electrode) arranged between the pair of polarizing plates (the first polarizing plate and the second polarizing plate); and a pair of alignment films (a first alignment film and a second alignment film) arranged between the pair of electrodes (the first transparent electrode and the second transparent electrode). A plurality of spacers, which support at least any one of the pair of alignment films and are in two-dimensional contact with at least any one of the pair of alignment films, is provided. At least some of the plurality of spacers have an inconstant distance to another spacer positioned at a closest distance.