A light-modulating cell comprising: a pair of film substrates (23, 24); a pair of electrodes (25, 26) arranged between the pair of film substrates (23, 24); a pair of alignment films (27, 28) arranged between the pair of electrodes (25, 26), the pair of alignment films including a first alignment film and a second alignment film; a plurality of spacers supporting at least any one of the pair of alignment films (27, 28) and being in two-dimensional contact with at least any one of the pair of alignment films (27, 28); and a liquid crystal layer arranged between the plurality of spacers between the pair of alignment films (27, 28), wherein the liquid crystal layer contains at least a dichroic pigment and a liquid crystal, at least some of the plurality of spacers are randomly arranged so as to reduce the interference effects of light diffracted from the plurality of spacers, no polarizing plate is provided, and the light modulating cell is configured such that the alignment of the dichroic pigment and the liquid crystal is twisted by 180 degrees or more with respect to a direction parallel to the film substrates in a state where no electric field is applied, wherein: each of the plurality of spacers includes a core portion and a covering portion covering at least a part of the core portion, the covering portion covers an upper surface of the core portion on the first alignment film side and a side surface of the core portion; the covering portion is formed using the same member as the second alignment film and is formed integrally with the second alignment film, and there is no boundary surface between the covering portion and the second alignment film; each of the plurality of spacers penetrates through the second alignment film and the liquid crystal layer; each of the plurality of spacers includes: a first support surface being in two-dimensional contact with the first alignment film of the pair of alignment films (27, 28); and a second support surface being in two-dimensional contact with one of the pair of electrodes (25, 26), and the first support surface is formed by the covering portion, and at least a part of the second support surface is formed by the core portion. a pair of film substrates (23, 24); a pair of electrodes (25, 26) arranged between the pair of film substrates (23, 24); a pair of alignment films (27, 28) arranged between the pair of electrodes (25, 26), the pair of alignment films including a first alignment film and a second alignment film; a plurality of spacers supporting at least any one of the pair of alignment films (27, 28) and being in two-dimensional contact with at least any one of the pair of alignment films (27, 28); and a liquid crystal layer arranged between the plurality of spacers between the pair of alignment films (27, 28), wherein the liquid crystal layer contains at least a dichroic pigment and a liquid crystal, at least some of the plurality of spacers are randomly arranged so as to reduce the interference effects of light diffracted from the plurality of spacers, no polarizing plate is provided, and the light modulating cell is configured such that the alignment of the dichroic pigment and the liquid crystal is twisted by 180 degrees or more with respect to a direction parallel to the film substrates in a state where no electric field is applied, each of the plurality of spacers includes a core portion and a covering portion covering at least a part of the core portion, the covering portion covers an upper surface of the core portion on the first alignment film side and a side surface of the core portion; the covering portion is formed using the same member as the second alignment film and is formed integrally with the second alignment film, and there is no boundary surface between the covering portion and the second alignment film; each of the plurality of spacers penetrates through the second alignment film and the liquid crystal layer; each of the plurality of spacers includes: a first support surface being in two-dimensional contact with the first alignment film of the pair of alignment films (27, 28); and a second support surface being in two-dimensional contact with one of the pair of electrodes (25, 26), and the first support surface is formed by the covering portion, and at least a part of the second support surface is formed by the core portion.