To provide a catalyst containing noble metal particles excellent in catalyst activity on a carbon base substrate by carrying fine noble metal particles on th carbon base substrate with good dispersivity and uniformity.

The manufacturing method of a catalyst for a fuel cell which contains noble metal particles carried on a carbon base substrate, the mean diameter of the noble metal particles being 3 nm or less, and contains elements existing on a surface of the carbon base substrate, where a ratio of number of atoms of oxygen to that of nitrogen is 10% or less and a ratio of number of atoms of oxygen to that of silicon is 40% or less, includes: a step in which carbon powder for the carbon substrate is dispersed in solvent and a carbon powder dispersed liquid is produced; and a step in which a noble metal solution is added to the carbon powder dispersed liquid and the noble metal particles are carried on the carbon base substrate. Furthermore, at least either the carbon powder dispersed liquid or the noble metal solution contains a polymer pigment dispersing agent.