An image forming apparatus includes a latent image holder that holds a latent image; a developing unit that contains developer including toner particles and carrier particles, develops a latent image with the toner particles, and forms a toner image; a voltage applying unit that applies a voltage to the developing unit; a toner concentration detection unit that detects a toner concentration that is a proportion of the toner particles to the developer contained in the developing unit; and a setting unit that sets a setting value of the voltage on the basis of the toner concentration detected by the toner concentration detection unit, the voltage being applied by the voltage applying unit to the developing unit, wherein a difference between an upper limit and a lower limit of the set value increases as the toner concentration increases, the set value being set by the setting unit.