PDF Accessibility: How to Create Accessible PDF Documents
Why PDF Accessibility Matters
PDFs remain one of the most widely used document formats on the web. Annual reports, product catalogs, menus, forms, invoices, and legal documents are frequently published as PDFs. However, PDFs are also one of the most common sources of accessibility barriers. An inaccessible PDF can be completely unusable for someone relying on a screen reader or other assistive technology.
Under the European Accessibility Act, all digital content provided as part of a covered service must be accessible — and that includes PDF documents. If your website offers downloadable PDFs, they must meet the same accessibility standards as your web pages.
What Makes a PDF Accessible?
An accessible PDF has several key characteristics:
1. Tagged Structure
Tags in a PDF serve a similar purpose to HTML elements on a web page. They define the document structure — headings, paragraphs, lists, tables, and images — allowing assistive technologies to interpret and navigate the content. Without tags, a PDF is just a collection of visual elements with no semantic meaning.
2. Logical Reading Order
The reading order of a PDF determines the sequence in which a screen reader reads the content. In many PDFs, especially those created from complex layouts, the visual order and reading order do not match. A document with columns, sidebars, and text boxes can be read in a confusing order unless the reading order is explicitly set.
3. Alternative Text for Images
Just like on the web, images in PDFs need alternative text descriptions. This is set through the PDF's tag structure, not through the visual content itself.
4. Accessible Tables
Tables must have proper header cells identified so screen readers can associate data cells with their corresponding headers. Complex tables with merged cells or multiple header rows require additional structure.
5. Bookmarks
Long documents should have bookmarks that correspond to the heading structure, allowing users to navigate to specific sections quickly.
6. Document Language
The document language must be set so screen readers use the correct pronunciation rules.
7. Searchable Text
PDFs created from scanned documents are essentially images of text. These must be processed with OCR (Optical Character Recognition) to create a searchable text layer that screen readers can access.
The PDF/UA Standard
PDF/UA (Universal Accessibility), formally known as ISO 14289, is the international standard for accessible PDFs. It aligns with WCAG requirements and provides specific technical requirements for PDF accessibility. Meeting PDF/UA ensures your PDFs are accessible to assistive technologies.
Creating Accessible PDFs from Source Documents
From Microsoft Word
The easiest way to create accessible PDFs is to start with a properly structured source document:
- Use heading styles: Apply Heading 1, Heading 2, etc. from the Styles panel — do not just change font size and bold
- Add alt text to images: Right-click the image, select "Edit Alt Text" and enter a description
- Use built-in lists: Use Word's bulleted and numbered list features rather than manually typing dashes
- Create proper tables: Use Word's table tools and define header rows
- Set document language: Set the correct language in File > Options > Language
- Run the Accessibility Checker: Use Review > Check Accessibility before exporting
- Export correctly: Use File > Save As > PDF, and check "Document structure tags for accessibility"
From Adobe InDesign
- Define export tags for all paragraph and character styles
- Set the articles panel reading order
- Add alt text to all images via Object > Object Export Options
- Mark decorative elements as artifacts
- Export using File > Export > Adobe PDF (Print) with "Create Tagged PDF" enabled
From Google Docs
Google Docs can export to PDF, but the accessibility of the output is limited. Use proper heading styles and add alt text to images before exporting. However, for documents requiring full PDF/UA compliance, consider using Microsoft Word or Adobe InDesign instead.
Remediating Existing PDFs
If you have existing PDFs that need to be made accessible, the process typically involves:
- Add tags: Use Adobe Acrobat Pro's Reading Order tool to add and organize tags
- Fix reading order: Verify and correct the reading order using the Order panel
- Add alt text: Add alternative text to all images through the tags panel
- Fix tables: Define table headers and structure through the tags panel
- Add bookmarks: Create bookmarks from the heading structure
- Set document properties: Set the title, language, and initial view settings
- Run the checker: Use Accessibility > Full Check in Acrobat Pro
PDF Accessibility Checklist
- Document is tagged
- Reading order is logical
- Document language is set
- Document title is set (and displays in title bar)
- All images have alt text
- Decorative images are marked as artifacts
- Headings are properly tagged and hierarchical
- Lists are tagged as lists
- Tables have header cells identified
- Links are tagged and have meaningful text
- Form fields have labels
- Color contrast meets WCAG requirements
- Bookmarks are present for long documents
- Text is searchable (not scanned image)
- Security settings do not prevent assistive technology access
Should You Use PDF or HTML?
Before investing in PDF accessibility, consider whether the content would be better served as an HTML web page. HTML is inherently more accessible than PDF and easier to maintain. Consider using HTML for:
- Content that is frequently updated
- Forms that users need to fill out
- Content that needs to be responsive on mobile devices
- Information pages, guides, and FAQs
Reserve PDFs for content that truly benefits from the fixed-layout format: print-ready materials, legal documents requiring signatures, and formal publications.
Test Your Website's PDF Accessibility
Remember that PDFs linked from your website are part of your overall accessibility obligation. EAAPass audits your website for WCAG 2.1 AA compliance, helping you identify accessibility issues across your digital presence. While PDF content requires separate PDF-specific testing, ensuring your web pages that link to and present PDFs are accessible is the first step.
Start your free website accessibility audit with EAAPass and ensure your entire digital presence meets compliance standards.