A membrane electrode assembly (MEA) for a fuel cell comprising a gradient catalyst structure and a method of making the same. The gradient catalyst structure can include a plurality of catalyst nanoparticles, e.g., platinum, disposed on layered buckypaper. The layered buckypaper can include at least a first layer and a second layer and the first layer can have a lower porosity compared to the second layer. The gradient catalyst structure can include single-wall nanotubes, carbon nanofibers, or both in the first layer of the layered buckypaper and can include carbon nanofibers in the second layer of the layered buckypaper. The MEA can have a catalyst utilization efficiency of at least 0.35 gcat/kW or less.