PDF Accessibility: How to Make Your PDFs ADA Compliant

Why PDF Accessibility Matters More Than Ever

Portable Document Format files are the backbone of digital communication across governments, universities, businesses, and nonprofits. Yet an alarming number of PDFs published online remain completely inaccessible to people who use assistive technologies like screen readers, braille displays, and voice navigation software.

In the United States alone, over 61 million adults live with a disability. Globally, that number exceeds 1.3 billion. When your PDFs lack proper accessibility structures, you are effectively locking out a significant portion of your audience from critical information.

Beyond the ethical imperative, there are serious legal consequences. The Americans with Disabilities Act (ADA), Section 508 of the Rehabilitation Act, and the European Accessibility Act all mandate that digital documents be accessible. Lawsuits related to digital accessibility have surged in recent years, with settlements reaching millions of dollars.

This guide walks you through everything you need to know about making PDFs accessible, from understanding the relevant standards to implementing proper document structure, testing your files, and using the right tools to automate the process.

Understanding Accessibility Standards for PDFs

Before diving into the technical details, it is important to understand the legal and technical frameworks that govern PDF accessibility.

ADA Compliance

The Americans with Disabilities Act does not explicitly mention PDFs or digital documents. However, courts have consistently interpreted Title II (state and local governments) and Title III (places of public accommodation) to include websites and digital content. If your organization publishes PDFs on a public-facing website, those documents must be accessible.

Section 508

Section 508 of the Rehabilitation Act applies specifically to federal agencies and organizations that receive federal funding. It requires that electronic and information technology be accessible to people with disabilities. The updated Section 508 standards (2017 refresh) directly reference WCAG 2.0 Level AA.

WCAG 2.1 and PDF/UA

The Web Content Accessibility Guidelines (WCAG) provide the most widely referenced technical standard for digital accessibility. PDF/UA (Universal Accessibility), formally known as ISO 14289-1, is the dedicated standard for accessible PDF files.

The Anatomy of an Accessible PDF

An accessible PDF is not simply a visual document. It contains a hidden layer of structural information that assistive technologies use to interpret and present the content to users. Understanding this structure is the foundation of PDF accessibility.

Tags and Document Structure

Tags are the single most important element of an accessible PDF. They define the logical structure of the document, similar to how HTML tags define the structure of a web page. A tagged PDF includes elements such as:

• Document — the root element
• Part, Section, Division — structural groupings
• Heading levels (H1-H6) — hierarchical headings
• Paragraph (P) — text blocks
• List (L), List Item (LI) — ordered and unordered lists
• Table, Table Row (TR), Table Header (TH), Table Data (TD) — data tables
• Figure — images and graphics with alt text
• Link — hyperlinks with descriptive text

Without tags, a screen reader encounters a PDF as a flat stream of characters with no indication of headings, paragraphs, lists, or tables. The experience is comparable to reading a wall of unformatted text.

Reading Order

The reading order determines the sequence in which content is presented to assistive technology users. In a visual PDF, elements might appear in columns, sidebars, or floating text boxes. The reading order must ensure that the logical flow of content makes sense when read sequentially.

Alternative Text

Every non-decorative image, chart, graph, and diagram must include alternative text that conveys the same information as the visual element. Decorative images should be marked as artifacts so screen readers skip them entirely.

Language Specification

The document must specify its primary language so that screen readers use the correct pronunciation engine. If the document contains passages in other languages, those passages should be tagged with the appropriate language attribute.

WCAG Requirements Checklist for PDFs

The following table maps key WCAG 2.1 success criteria to specific PDF accessibility requirements. Use this as a checklist when auditing your documents.

Step-by-Step Guide to Creating Accessible PDFs

Step 1: Start with an Accessible Source Document

The easiest way to create an accessible PDF is to start with a properly structured source document. Whether you are using Microsoft Word, Google Docs, InDesign, or another application, follow these practices:

• Use built-in heading styles (Heading 1, Heading 2, etc.) instead of manually formatting text
• Use the built-in list tools for bulleted and numbered lists
• Add alt text to all images within the source application
• Use the built-in table tools and define header rows
• Avoid using text boxes, which can disrupt reading order
• Set the document language in the application settings

When you export to PDF, ensure you select the option to create a tagged PDF. In Microsoft Word, this is under "Options" in the Save As dialog (check "Document structure tags for accessibility").

Step 2: Verify and Repair Tags

Even when you export a tagged PDF from a well-structured source document, the tags may need refinement. Open the PDF in Adobe Acrobat Pro and inspect the tag tree:

1. Open the Tags panel (View > Show/Hide > Navigation Panes > Tags)
2. Walk through the tag tree and verify the hierarchy
3. Ensure all headings use the correct level (H1, H2, H3, etc.)
4. Verify that tables have proper TH (table header) tags
5. Check that lists use L, LI, Lbl, and LBody tags correctly

Step 3: Set Reading Order

Use the Reading Order tool in Acrobat Pro to verify and adjust the sequence:

1. Open Tools > Accessibility > Reading Order
2. Click "Show Order Panel" to see the numbered reading sequence
3. Drag elements in the Order panel to rearrange the sequence
4. Ensure columns are read top-to-bottom within each column before moving to the next

Step 4: Add Alternative Text

For every image that conveys information:

1. Right-click the Figure tag in the Tags panel
2. Select Properties
3. Enter descriptive alt text in the "Alternate Text" field
4. For decorative images, change the tag to Artifact instead

Step 5: Configure Document Properties

Set the following in File > Properties:

• Title: A descriptive document title (not the filename)
• Language: The primary language of the document
• Initial View: Set to display the document title in the title bar

Step 6: Make Forms Accessible

If your PDF contains form fields:

• Add tooltip descriptions to every form field
• Set the tab order to follow the document structure
• Group related radio buttons
• Mark required fields
• Add descriptive labels

Step 7: Run the Accessibility Checker

Adobe Acrobat Pro includes a built-in accessibility checker:

1. Go to Tools > Accessibility > Full Check
2. Select all checking options
3. Review the results and fix any failures
4. Re-run the checker until all tests pass

Tools for PDF Accessibility

Adobe Acrobat Pro

Adobe Acrobat Pro is the industry standard for PDF accessibility remediation. It offers the most comprehensive set of tools for tagging, reading order, and form accessibility. However, it comes with a significant price tag and a steep learning curve.

Free and Open-Source Alternatives

For organizations on a budget, several free tools can help:

• PAC (PDF Accessibility Checker) — Free tool from the Swiss foundation Access for All that checks PDF/UA compliance
• NVDA — Free screen reader for Windows, essential for manual testing
• VoiceOver — Built into macOS and iOS, useful for testing on Apple devices
• axe for PDF — Browser-based accessibility testing

Online Tools

Our platform offers several tools that support the accessibility workflow:

• PDF OCR — Convert scanned PDFs into searchable, selectable text as a first step toward accessibility
• Edit PDF — Make quick edits and corrections to PDF content
• PDF Converter — Convert PDFs to accessible formats like HTML or Word for easier remediation
• Compress PDF — Reduce file size without removing accessibility tags
• Document Converter — Convert between document formats while preserving structure

Common Accessibility Issues and How to Fix Them

Scanned Documents

Scanned PDFs are essentially images wrapped in a PDF container. They contain no real text, no tags, and no structure. The fix involves two steps:

1. Run OCR to convert the image into selectable text. Our OCR tool for scanned documents handles this efficiently.
2. Add tags and structure to the OCR output, since OCR alone does not create an accessible document.

Merged or Split Tables

Tables that span multiple pages often lose their header row associations. Ensure that:

• Each page segment of the table includes properly tagged header cells
• The Scope attribute is set to "Column" or "Row" for header cells
• Complex tables with merged cells use the Headers attribute to associate data cells with headers

Color-Only Information

Charts, graphs, and status indicators that rely solely on color to convey information are inaccessible to colorblind users. Always supplement color with text labels, patterns, or shapes.

Missing Bookmarks

Long documents (20+ pages) should include bookmarks that mirror the heading structure. In Acrobat Pro, you can generate bookmarks automatically from the tag structure.

Inconsistent Heading Hierarchy

Headings must follow a logical hierarchy without skipping levels. Do not jump from H1 to H3 without an H2 in between. Each document should have exactly one H1.

Testing Your PDFs for Accessibility

Automated testing catches many issues, but it cannot catch everything. A comprehensive testing strategy includes both automated and manual testing.

Automated Testing

1. Run Adobe Acrobat's built-in accessibility checker
2. Use PAC (PDF Accessibility Checker) for PDF/UA validation
3. Check color contrast with a contrast analyzer tool

Manual Testing

1. Screen reader testing — Navigate the entire document using NVDA (Windows) or VoiceOver (Mac). Listen to how the content is read and verify that the reading order, headings, lists, tables, and images are announced correctly.
2. Keyboard testing — Tab through all interactive elements (links, form fields, buttons) to ensure they are reachable and operable without a mouse.
3. Reflow testing — Zoom to 400% or enable reflow mode (View > Zoom > Reflow) to verify that content adapts without losing information or functionality.

Common Testing Findings

PDF Accessibility in Different Workflows

Microsoft Word to PDF

1. Use built-in styles for all formatting
2. Add alt text via right-click > Edit Alt Text
3. Use Insert > Table for data tables and mark header rows
4. File > Save As > PDF > Options > check "Document structure tags for accessibility"

Google Docs to PDF

Google Docs exports tagged PDFs when you use heading styles and built-in lists. However, the tag quality is often inferior to Word exports, and you may need to remediate in Acrobat Pro.

InDesign to PDF

InDesign offers robust accessibility features:

1. Use paragraph styles mapped to PDF tags (Object > Object Export Options)
2. Set the Articles panel to define reading order
3. Add alt text via Object > Object Export Options > Alt Text
4. Export using the PDF/UA preset or enable "Create Tagged PDF" in export options

LaTeX to PDF

LaTeX users can create tagged PDFs using the accessibility or tagpdf packages. This is still an evolving area, and the output may require additional remediation.

Legal Consequences of Inaccessible PDFs

The legal landscape around digital accessibility continues to intensify. Here are real-world examples of enforcement:

• Higher education: Hundreds of complaints have been filed with the Office for Civil Rights against universities whose course materials, including PDFs, were inaccessible
• Government agencies: The DOJ has entered into numerous settlement agreements requiring comprehensive document remediation programs
• Private sector: ADA Title III lawsuits targeting inaccessible digital content have exceeded 4,000 per year
• Financial penalties: Settlements routinely include six- and seven-figure remediation costs plus ongoing compliance monitoring

Organizations that proactively invest in PDF accessibility avoid these risks while simultaneously improving their content for all users.

Building an Organizational Accessibility Strategy

Training

Invest in accessibility training for everyone who creates documents. This includes content writers, graphic designers, administrators, and IT staff. A one-time training session is not sufficient — accessibility practices need to be reinforced through ongoing education and documented procedures.

Templates

Create accessible document templates that include:

• Pre-configured heading styles
• Accessible color palettes with sufficient contrast
• Placeholder alt text reminders
• Properly structured table formats
• Metadata fields pre-populated with language and title conventions

Quality Assurance

Integrate accessibility checks into your document publishing workflow:

1. Authors run an initial accessibility check before submission
2. A designated reviewer performs a secondary check
3. Periodic audits sample published documents for compliance
4. Track and report accessibility metrics over time

Remediation Priority

For organizations with large backlogs of inaccessible PDFs, prioritize remediation based on:

• High priority: Documents accessed most frequently, documents required by law (financial reports, public notices)
• Medium priority: Educational materials, marketing collateral
• Lower priority: Archived documents with low traffic

Conclusion

PDF accessibility is not optional — it is a legal requirement, an ethical obligation, and a practical improvement to your documents. By understanding the relevant standards, implementing proper document structure, and testing with real assistive technologies, you can ensure that your PDFs reach every member of your audience.

Start with your highest-impact documents, build accessibility into your templates and workflows, and use the right tools to streamline the process. Our PDF tools and document converter can help you create, convert, and optimize PDFs throughout the accessibility workflow.

The investment you make in accessibility today pays dividends in legal protection, broader reach, improved SEO, and a more inclusive digital presence.