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1. Decide whether the content should be PDF or HTML
Use HTML when the material is primarily web information, is likely to change, or should adapt to a reader’s screen, text size and assistive technology. GOV.UK guidance updated 9 October 2025 calls HTML “the most accessible format for publishing documents.” The same guidance warns that PDFs can be harder to find, use and maintain and often do not work well with screen readers.
Choose PDF when a fixed page is genuinely important—for example, a form with a controlled print layout, a designed report that must be downloaded, or a document whose pagination is part of its meaning. Even then, publish an HTML summary or equivalent when the content is mainly informational.
| Consideration | HTML | |
|---|---|---|
| Presentation | Reflows and lets users control zoom, text size and other presentation choices. | Preserves a fixed page design, but small text, columns and large pages can be difficult to navigate. |
| Assistive technology | Semantic headings, landmarks and native controls are broadly supported when coded correctly. | Depends on a correct tag tree, reading order, metadata and tagged links. |
| Maintenance | Update one web page and its URL. | Every regenerated file must be rechecked; old downloads may remain in circulation. |
| Printing and fixed layout | Print output varies by browser and settings. | Best when exact pagination or print appearance is required. |
| Links and navigation | Native links, headings and browser navigation are immediate. | Links, bookmarks and headings must be present in the PDF structure. |
| Testing burden | Requires web accessibility testing. | Requires automated checks plus tag, reading-order, keyboard and assistive-technology inspection. |
2. Make the source document accessible before export
Export quality largely reflects the source. Do not format a document by merely enlarging or bolding text; apply real semantic styles and preserve relationships between content.
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Use a meaningful heading hierarchy
Apply the authoring application’s built-in heading styles in order. Start with one document title, then use level-two sections and lower levels only when a subsection belongs under the preceding section. Do not skip levels to obtain a visual size. A screen reader should be able to navigate the outline without reading every paragraph.
Build real lists and tables
Use list controls for ordered and unordered lists instead of typing hyphens or numbers. In tables, identify header cells and keep the structure simple. Avoid using tables for page layout. Give a table a short caption or introductory sentence when its purpose is not obvious.
Write useful link text
Link text should state the destination or action, such as “Download the 2025 application form (PDF),” rather than “click here” or a long bare URL. Create links while authoring whenever possible. W3C guidance identifies author-time link creation as the simplest way to meet link accessibility requirements.
Describe images and decorative artwork
Provide alternative text that conveys the information a reader needs. A chart needs its conclusion or data relationship, not merely “chart.” A meaningful photograph needs a concise description relevant to the surrounding text. Mark borders, flourishes and purely decorative artifacts as decorative so they are not announced unnecessarily.
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Check visual basics and document properties
Use sufficient contrast, readable type and clear spacing. Set the document language, title and other metadata in the source. Keep the filename short, descriptive and free of confusing version strings; a name such as benefits-application-2025.pdf is easier to identify than final_final2.pdf.
3. Export a tagged PDF
Choose the export or Save as PDF option that preserves accessibility tags. Microsoft 365 can add tags automatically when saving a document as PDF. Automatic tagging is only a starting point: it can misidentify headings, lists, tables, figures or reading order, especially in complex layouts.
- Save an editable source copy with heading styles, real lists, table headers, alternative text, language and title metadata.
- Use the application’s accessible PDF or tagged-PDF export setting; do not print to a PDF printer when that would flatten the structure.
- Open the resulting PDF in a tool that exposes its tag tree and accessibility properties.
- Record the exported filename and version so the exact file tested is the one uploaded.
4. Repair the PDF’s semantic structure
Section508.gov describes tags as the structural foundation of an accessible PDF. Inspect and correct the following items rather than trusting a green automated result.
- Tags and headings: confirm that paragraphs, headings and lists have the correct element types and hierarchy.
- Reading order: ensure columns, sidebars, captions and footnotes are announced in a sensible sequence. A visually correct page can still be read in the wrong order.
- Tables: identify header cells and relationships; repair merged or irregular cells that are announced confusingly.
- Figures: add meaningful alternative text or mark decorative figures as artifacts.
- Links: make each link programmatically available and associate it with purposeful visible text. In Acrobat Pro, the Create Link workflow can add links to an existing file; W3C PDF13 also describes an
/Altvalue on a Link tag when visible text is an unhelpful URL. - Forms: give every field a label, a logical tab order, an appropriate type and instructions for required or invalid input.
- Metadata and language: set the document title, primary language and other required properties.
- Bookmarks: for long documents, generate bookmarks from the heading structure so users can jump between sections.
Complex designs—multi-column magazines, floating text boxes, scanned pages and data-heavy tables—often need manual remediation after export. If the source is a scan, run optical character recognition first, then verify every recognized word and its order; an image of text without a text layer is not usable to a screen reader.
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5. Test before putting the URL in public
Run automated checks, then inspect manually
Use the authoring application’s accessibility checker and a PDF checker to find missing tags, language, alternate text, titles and form labels. Automated tools cannot reliably judge whether alternative text is meaningful or whether a complex page is read in the right order.
- Open the tag tree and check the hierarchy from title through the final paragraph.
- Inspect reading order on every distinct page design.
- Use only the keyboard: move through links, controls and form fields, and verify a visible focus indicator and logical tab sequence.
- Activate every link and confirm it reaches the intended destination.
- Review zoom and reflow behavior where the viewer supports it; make sure content is not hidden behind overlays.
- Test with a screen reader when possible. Listen to headings, lists, tables, figures, links and form fields rather than checking only that text can be selected.
Fix failures in the source when possible, export again and repeat the inspection. If you repair only the PDF, keep a record of the changes so the next export does not remove them.
6. Publish an accessible PDF link
- Serve the file over HTTPS at a stable, descriptive URL. Avoid temporary session links and filenames that change on every upload.
- Use surrounding HTML text that identifies the format and destination:
Download the 2025 benefits guide (PDF, 2.4 MB)is useful context; “PDF” alone is not. - Keep the HTML alternative available for information that does not require fixed pagination.
- Set a download response that preserves the filename and a correct PDF content type. Do not rely on a browser preview as your accessibility test.
- After replacing the file, repeat link, tag and screen-reader checks. A new export can change the reading order or remove repairs.
Example HTML link:
<p><a href="/documents/benefits-guide-2025.pdf">Download the 2025 benefits guide (PDF, 2.4 MB)</a></p>If the PDF is a form or contains sensitive information, confirm that permissions, encryption and signing do not prevent assistive technology from reading or completing it. Accessibility settings must not be disabled by security configuration.
7. Troubleshooting common failures
| Symptom | Likely cause | Fix |
|---|---|---|
| Screen reader says “untagged document.” | The file was printed to PDF or exported without tags. | Export from the structured source with tagged PDF enabled; remediate if tags are incomplete. |
| Headings appear as ordinary text. | Visual formatting replaced semantic styles. | Apply real heading styles in the source, export again and verify the tag tree. |
| Two-column text is read across the wrong columns. | Reading-order objects were exported incorrectly. | Repair order manually and retest each page layout. |
| Links are announced as long, meaningless URLs. | Visible text does not explain purpose or link metadata is missing. | Rewrite link text and ensure the link annotation is correctly tagged; use a suitable alternate value where necessary. |
| Images are announced as “figure” with no information. | Alternative text is missing or marked decorative incorrectly. | Add concise, context-specific alternative text and inspect it with a screen reader. |
| Text cannot be selected or searched. | The PDF is a scan with no text layer. | Run OCR, proofread the result and rebuild the reading order; provide HTML when practical. |
| Automated checker passes but users report problems. | Automated checks cannot judge meaning, order or usability. | Perform manual keyboard and screen-reader testing and correct the source or tags. |
| The link works for you but not for some users. | Authentication, expiring URLs, restrictive permissions or a replaced file. | Use a stable public HTTPS URL where appropriate, review permissions and retest after deployment. |
8. Performance, maintenance and governance
Keep PDFs reasonably sized by optimizing images without making text illegible. Test download and opening time on a slower connection, especially for large reports. Preserve the accessible source file, the tested PDF and the publication date together. When content changes, regenerate a new version, update the link deliberately and remove or redirect obsolete copies so users do not encounter an untested duplicate.
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Assign an owner for content, remediation and link monitoring. Accessibility is a publishing process, not a one-time export setting: a new logo, table, page break or form field can introduce a defect.
Independent reader supportYour contribution helps us test, update, and keep practical guides available for everyone.Or skip the browser setup
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9. A practical pre-publication checklist
- HTML was chosen unless fixed pagination has a documented purpose.
- The source uses semantic headings, lists, table headers, meaningful links and image alternatives.
- The PDF is tagged, titled, language-set and ordered logically.
- Links, figures, forms, bookmarks and metadata were inspected in the final file.
- Keyboard, automated and screen-reader checks were completed.
- The HTTPS URL and surrounding link text identify the PDF and its size or purpose.
- An HTML alternative is available when the content is primarily web information.
- The exact uploaded file was retested after publication.
Frequently Asked Questions
Can a PDF be accessible without being tagged?
No. Tags provide the semantic structure assistive technology uses to identify headings, paragraphs, lists, tables and figures. An untagged file needs structural remediation or replacement.
Is an accessibility checker enough for a PDF?
No. Checkers detect many technical conditions but cannot reliably judge meaningful alternative text, reading order or real keyboard and screen-reader usability. Manual testing remains necessary.
Should I put the PDF URL in the link text?
Usually not. Describe the document and action instead, and identify the format in context. A long bare URL gives little useful information to someone navigating by links.
What should change when I replace an accessible PDF?
Treat every replacement as a new test subject. Recheck its tags, order, links, forms and assistive-technology behavior, then verify that the public URL serves that exact file.
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