PDF Accessibility Guidance

PDF Accessibility Guidance

This guide provides practical, actionable steps for creating accessible PDFs. These guidelines ensure compliance with WCAG 2.1 Level AA standards and make your content accessible to all users, including those using assistive technologies.

Creating Accessible PDFs

The Golden Rule: Share the Source, Not the PDF

The most accessible document is often not a PDF at all. Whenever possible, share the original editable file (Word, PowerPoint, Google Docs) instead of converting to PDF. Source files are easier to edit, reflow on mobile devices, and can be checked for accessibility before distribution.

Why Most PDFs Fail Accessibility

PDFs created using “Print to PDF” functions are essentially image-based documents that screen readers cannot interpret. Even when PDFs are created properly, they often lose critical accessibility features during conversion if the source document was not structured correctly.

Step-by-Step Guide to Accessible PDFs




Step Action Why It Matters Tools/Methods
1. Keep the Source File Always retain the original Word, PowerPoint, or Google Docs file and share it as the primary option. Source files are editable, searchable, and preserve accessibility features like headings and alt text. Word (.docx), PowerPoint (.pptx), Google Docs
2. Use “Print to PDF” with Caution Avoid the print-to-PDF function. Verify the PDF after printing with an automated accessibility checker. Print-to-PDF creates image-based PDFs that cannot be read by screen readers or reflowed for different screen sizes. Adobe Acrobat Pro: Tools > Accessibility > Full Check. Microsoft Accessibility Checker: Review > Check Accessibility
3. Export a Digital-First PDF Use the “Export” or “Save As” feature and select “PDF/A” or “Accessible PDF” option. Export functions preserve document structure, tagging, alt text, and reading order. Microsoft Office: File > Export > Create PDF/A. Google Drive: File > Download > PDF Document (.pdf)
4. Verify Accessibility Run an automated accessibility checker on the exported PDF. Automated tools catch common errors like missing alt text, improper heading structure, and incorrect reading order. Adobe Acrobat Pro: Tools > Accessibility > Full Check. Microsoft Accessibility Checker: Review > Check Accessibility
5. Report Tool Issues If the PDF fails accessibility checks despite proper source formatting, report the issue to Microsoft or Adobe. Continuous reporting helps improve export tools and benefits the entire community. Microsoft Feedback Hub, Adobe Support
6. Remediate Legacy PDFs For old or inaccessible PDFs, convert back to Word/PowerPoint using Adobe Acrobat Pro, fix accessibility issues, then re-export. Allows you to add missing alt text and correct structural issues that were lost in the original conversion. Adobe Acrobat Pro: Tools > Export PDF > Microsoft Word/PowerPoint
7. Handle Scanned PDFs For scanned documents, insert the scan as an image into a Word/PowerPoint document and add a full text description in the body of the document. Scanned PDFs are inherently inaccessible. Providing a text alternative meets WCAG 2.1 Level AA requirements. Microsoft Word/PowerPoint: Insert > Pictures

Best Practices for PDF Accessibility

Before Creating the PDF

The accessibility of your PDF is determined by the accessibility of your source document. Follow these practices:

  • Use built-in heading styles (Heading 1, Heading 2, etc.) to create proper document structure.
  • Add descriptive alt text to all images, charts, and graphics.
  • Ensure tables are simple with clearly identified header rows.
  • Use descriptive hyperlink text instead of generic phrases like “click here.”
  • Check color contrast ratios (minimum 4.5:1 for text).
  • Set the document language in file properties.

After Creating the PDF

  • Verify that the PDF has a descriptive title in file properties.
  • Ensure the initial view is set to “Show: Document Title” in file properties.
  • Confirm security settings allow “Content copying for accessibility: Allowed.”

When You Must Use PDFs

In some cases, PDFs are required for legal, archival, or formatting reasons. When this is necessary:

  1. Start with an accessible source document.
  2. Use the Export function with accessibility settings enabled.
  3. Run the Adobe Acrobat Pro Accessibility Checker and remediate all issues.
  4. Provide an alternative accessible format (Word, HTML) alongside the PDF.
  5. Include a contact email for users who encounter accessibility barriers.

Common PDF Accessibility Errors and Fixes



Error Problem Solution
Missing Alt Text Images and graphics have no alternative text description. Add alt text to all images in the source document before exporting. In Adobe Acrobat Pro, right-click the image > Edit Alternate Text.
Improper Heading Structure Headings are created using bold formatting instead of heading styles. Use the built-in heading styles in the source document. In Adobe Acrobat Pro, correct tags in the Tags panel.
Incorrect Reading Order Content is read out of logical sequence by screen readers. Use the Reading Order tool in Adobe Acrobat Pro: Tools > Accessibility > Reading Order.
Tables Without Headers Tables lack designated header rows or columns. In the source document, mark the first row as a header row. In Adobe Acrobat Pro, use the Tags panel to designate table headers.
Scanned Document The PDF is an image with no selectable text. Use OCR (Optical Character Recognition) in Adobe Acrobat Pro: Tools > Enhance Scans > Recognize Text. Verify accuracy and correct errors.

Remediating Existing PDFs

Existing PDFs can be remediated. If you have PDFs that were created without accessibility in mind, there are several approaches to bring them into compliance.

Choose Your Approach



Approach When to Use How
Go back to the source file (preferred) When the original Word, PowerPoint, or Google Docs file is available Fix accessibility in the source application (headings, alt text, reading order, tables), then re-export using File > Export > PDF. This produces the best results.
Convert PDF to Word, fix, re-export When no source file exists but the PDF has selectable text Adobe Acrobat Pro: Tools > Export PDF > Microsoft Word. Fix accessibility issues in Word, then re-export.
Remediate directly in Adobe Acrobat Pro When the PDF is complex or converting to Word would lose formatting Use the Tags panel, Reading Order tool, and Accessibility Checker to fix issues in place. See detailed steps below.
Use SensusAccess for bulk conversion When you have many untagged PDFs that need basic tagging Upload to SensusAccess and convert to tagged PDF. Good for straightforward documents; complex layouts may need manual follow-up.
OCR for scanned/image-only PDFs When the PDF is a scanned image with no selectable text Adobe Acrobat Pro: Tools > Enhance Scans > Recognize Text. After OCR, you must still add tags, alt text, and verify reading order.

Remediating Directly in Adobe Acrobat Pro

When you must fix a PDF without going back to the source file, follow these steps:

  1. Run the Accessibility Checker: Tools > Accessibility > Full Check. Review the report for all failed items.
  2. Add or fix tags: Open the Tags panel. Use Tools > Accessibility > Reading Order to assign tags (headings, paragraphs, lists, tables, figures) to untagged content.
  3. Add alt text to images: In the Tags panel, right-click each <Figure> tag > Properties > Edit Alternate Text.
  4. Fix table structure: In the Tags panel, ensure tables have <TH> (table header) tags for header cells. Set the Scope attribute to “Column” or “Row” as appropriate.
  5. Correct reading order: Use Tools > Accessibility > Reading Order, then drag elements in the Order panel to match the visual/logical reading sequence.
  6. Set document properties: File > Properties > set Title and Language.
  7. Set initial view: File > Properties > Initial View > Show: Document Title.
  8. Re-run the Accessibility Checker to confirm all issues are resolved.

When Remediation Is Not Feasible

If a PDF cannot be made accessible (e.g., a heavily designed legacy document with no source file), you must provide the content in an alternative accessible format (Word, HTML, or plain text)

Accessible PDF Forms

PDF forms present unique accessibility challenges. Form fields must be properly labeled, logically ordered, and usable with keyboard and screen reader.

Choose Your Approach



Approach When to Use Details
Rebuild from the source file (preferred) When the original Word, InDesign, or other source file exists Fix form field labels, structure, and tab order in the source application, then re-export. Starting from the source produces the most reliable accessible forms.
Remediate in Adobe Acrobat Pro When no source file exists or the PDF was the original authoring format Use the Prepare Form tool (Tools > Prepare Form) to add or fix form fields. Ensure every field meets the requirements below.
Replace with a web form When the PDF form is too complex to remediate or is frequently used Consider replacing the PDF form with a web-based form (e.g., Drupal Webform, Google Forms, Qualtrics). Web forms are natively keyboard-accessible and screen-reader compatible, making them inherently more accessible than PDF forms.

Form Field Accessibility Requirements

Every form field must meet these criteria:

  • Tooltip/label: Every field has a descriptive tooltip that identifies its purpose (e.g., “First Name,” “Department,” “Date of Request”). This is the accessible name that screen readers announce.
  • Tab order: Fields follow the visual reading order of the form. Users pressing Tab move through fields in a logical sequence, left to right and top to bottom.
  • Required fields: Required fields are identified programmatically (not just by color or asterisk alone). Use the “Required” property in Acrobat’s field settings.
  • Grouped controls: Related radio buttons and checkboxes are grouped with a shared group name so screen readers announce the group context.
  • Error messages: If the form includes validation, error messages are associated with their specific fields and describe what needs to be corrected.
  • Keyboard operable: The form can be completed entirely using only the keyboard (Tab, Shift+Tab, Enter, Space, Arrow keys).
  • Instructions: Any instructions or special formatting requirements appear before the form field they relate to, not after.

Remediating Forms in Adobe Acrobat Pro

  1. Open the form in Adobe Acrobat Pro.
  2. Go to Tools > Prepare Form. Acrobat will auto-detect form fields.
  3. Review each detected field. Right-click > Properties to set:
    • General tab: Name (internal) and Tooltip (accessible label)
    • Options tab: Default values and choices for dropdowns/radio buttons
    • Actions tab: Any submit or calculation actions
  4. Set tab order: View > Navigation Panels > Page Thumbnails > right-click page > Page Properties > Tab Order > Use Row Order (or set manually).
  5. Group related radio buttons by giving them the same field name but different export values.
  6. Run the Accessibility Checker to verify all fields are properly labeled and ordered.

Quick Reference Checklist

For PDFs

For Existing PDFs

For PDF Forms

Additional Resources

UC Merced Resources

External Resources

Frequently Asked Questions

Q: Can I use Google Docs’ “Download as PDF” feature? A: Yes, but only if your Google Doc is properly formatted with heading styles, alt text, and other accessibility features. The Google Docs PDF export preserves most accessibility features, but you should still verify the PDF with an accessibility checker.

Q: What should I do if I cannot make a legacy PDF accessible? A: If remediation is not feasible, provide the content in an alternative accessible format (Word, HTML) alongside the PDF. 

Q: Can existing PDFs really be fixed? A: Yes. Most PDFs can be remediated using Adobe Acrobat Pro’s accessibility tools (Tags panel, Reading Order tool, Accessibility Checker). The preferred approach is to go back to the original source file, fix accessibility there, and re-export. When no source exists, direct remediation in Acrobat is effective for most documents. For large volumes of untagged PDFs, SensusAccess can automate basic tagging.

Q: What about PDF forms – can those be made accessible too? A: Yes, but forms require extra attention. Every form field needs a descriptive label (tooltip), logical tab order, and keyboard operability. When possible, start from the original source file. For frequently used forms, consider replacing the PDF with a web-based form (Drupal Webform, Google Forms, Qualtrics) which is inherently more accessible.

Q: I have hundreds of old PDFs on my website. Where do I start? A: Prioritize by impact: start with the most-visited pages and student-facing documents. Use SensusAccess for bulk conversion of simple untagged PDFs, then manually remediate complex documents. Remove PDFs that are outdated and no longer needed. For the remaining documents, work through them systematically using the remediation approaches in the “Remediating Existing PDFs” section above.