A membrane electrode assembly (MEA) for a fuel cell comprising a catalyst layer and a method of making the same. The catalyst layer can include a plurality of catalyst nanoparticles, e.g., platinum, disposed on buckypaper. The catalyst layer can have 1% or less binder prior to attachment to the membrane electrode assembly. The catalyst layer can include (a) single-wall nanotubes, small diameter multi-wall nanotubes, or both, and (b) large diameter multi-wall nanotubes, carbon nanofibers, or both. The ratio of (a) to (b) can range from 1:2 to 1:20. The catalyst layer can produce a surface area utilization efficiency of at least 60% and the platinum utilization efficiency can be 0.50 gPt/kW or less.