When to Use PDFs vs Word or HTML

A guide for reducing accessibility remediation work

Choosing the correct document format is one of the most effective ways to reduce accessibility remediation work and improve usability.

Many accessibility issues occur not because content is inaccessible, but because the wrong format was chosen in the first place.

Selecting the appropriate format—PDF, Word, or HTML—can significantly reduce remediation time while improving accessibility for everyone.

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Quick Decision Guide: Should This Be a PDF?

Use the following questions to determine the most appropriate format for your content.

Because accessible PDFs must meet both WCAG 2.1 Level AA and the PDF/UA standard, they typically require significantly more accessibility remediation than Word or HTML documents. For this reason, PDFs should only be used when the format is truly necessary.

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Accessibility Standards by Format

Different file formats have different accessibility requirements.

Word and HTML

Content created in Microsoft Word or HTML must meet:

WCAG 2.1 Level AA

WCAG (Web Content Accessibility Guidelines) governs things like:

• Proper heading structure

• Alternative text for images

• Color contrast

• Meaningful link text

• Keyboard accessibility

These formats are generally easier to make accessible because they naturally support semantic structure.

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Markdown (Often Used to Produce HTML)

Some documentation systems use Markdown as an authoring format.

Markdown is a lightweight markup language that converts into HTML, meaning the final published content must still meet WCAG 2.1 Level AA.

When used properly, Markdown can support accessible structure because it encourages:

• Proper headings (# Heading)

• Lists

• Links

• Structured content

However, accessibility still depends on how the content is rendered in HTML.

Important considerations:

• Images still require alternative text

• Heading levels must remain logical

• Tables and links must be used correctly

• The final HTML output must meet WCAG 2.1 Level AA

Markdown is therefore typically used as an authoring tool for HTML-based content, not as a downloadable document format.

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PDFs

Accessible PDFs must meet two standards simultaneously:

1. WCAG 2.1 Level AA

2. PDF/UA (ISO 14289)

PDF/UA is a specialized accessibility standard specifically for PDFs.

It governs additional requirements such as:

• Proper document tagging

• Logical reading order

• Tagged artifacts

• Accessible form fields

• Correct structure elements

Because PDFs must meet both WCAG and PDF/UA, they typically require more effort to remediate and maintain.

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Important Note About Adobe Acrobat’s Accessibility Checker

Adobe Acrobat includes an accessibility checker, but it is important to understand its limitations.

Adobe Acrobat’s Accessibility Checker primarily checks against WCAG-related issues, not full PDF/UA compliance.

This means a PDF can pass Acrobat’s accessibility checker and still fail PDF/UA requirements.

Passing the Acrobat checker does not guarantee that a PDF is fully accessible.

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Bona Fide Reasons to Use a PDF

PDFs should be used when the document format itself is essential to the content.

1. Documents That Must Preserve Exact Layout

PDFs maintain identical formatting across all devices and operating systems.

Examples:

• Official reports with strict formatting

• Publications with complex layouts

• Multi-column documents

• Materials with precise graphic placement

Why PDF works:

• Prevents layout shifts

• Ensures consistent visual presentation

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2. Documents Intended for Printing

PDFs are ideal when the primary purpose is printing.

Examples:

• Posters

• Flyers

• Brochures

• Printable worksheets

• Event signage

Why PDF works:

• Supports print-quality resolution

• Maintains margins and page breaks

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3. Finalized or Signed Documents

PDFs are commonly used when a document represents a final, uneditable version.

Examples:

• Contracts

• Agreements

• Signed documents

• Official policy documents

Why PDF works:

• Prevents accidental editing

• Supports digital signatures

• Preserves document integrity

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4. Documents Intended for Download or Offline Distribution

PDFs work well when documents must be downloaded or archived.

Examples:

• Annual reports

• Manuals

• Official publications

• Course syllabi

Why PDF works:

• Portable across devices

• Easy to distribute

• Reliable for archiving

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5. Documents Requiring Consistent Page References

Some materials rely on fixed page numbering.

Examples:

• Legal documents

• Policy manuals

• Academic citations

Why PDF works:

• Page numbers remain stable across devices

• Prevents reflow that changes references

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Common Misuses of PDFs (and Better Alternatives)

Many PDFs exist simply because someone clicked “Save as PDF” or "Print to PDF".  

In many situations, Word or HTML would be more accessible and easier to maintain.

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Misuse #1: Information Meant to Be Read on a Website

Problem

Posting a PDF when the content is intended to be read online.

Examples:

• Instructions

• Announcements

• Policy summaries

• FAQs

Better Option

HTML web pages (or Markdown that publishes to HTML)

Benefits:

• Responsive design

• Better screen reader navigation

• Easier updates and maintenance

• Improved searchability

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Misuse #2: Documents That Are Still Being Edited

Problem

Using PDFs for draft or collaborative documents.

Examples:

• Draft policies

• Committee documents

• Documents under review

Better Option

Microsoft Word

Benefits:

• Built-in Accessibility Assistant

• Easier editing and commenting

• Simplified collaboration

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Misuse #3: Simple Documents With Minimal Formatting

Problem

Creating PDFs for simple documents that do not require fixed layout.

Examples:

• Meeting notes

• Short guides

• Basic instructions

Better Option

Word or HTML

Benefits:

• Easier heading structure

• Better assistive technology compatibility

• Simpler updates

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Misuse #4: Forms That Could Be Online Forms

Problem

Using fillable PDFs when users could complete forms online.

Examples:

• Applications

• Registrations

• Surveys

Better Option

Accessible HTML forms

Benefits:

• Mobile-friendly

• Better keyboard navigation

• Automatic data collection

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Misuse #5: Content That Changes Frequently

Problem

Posting PDFs for information that changes regularly.

Examples:

• Schedules

• Event calendars

• Resource lists

Better Option

HTML web content

Benefits:

• Faster updates

• Single source of truth

• No repeated remediation

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High-Risk PDFs That Create the Most Accessibility Work

Some types of PDFs are significantly more difficult to make accessible because they frequently violate both WCAG and PDF/UA.

Whenever possible, these should be created in Word or HTML instead.

High-risk PDF types include:

• Scanned documents

• Graphic-heavy flyers and posters

• Complex tables

• Fillable PDF forms

• Frequently updated documents

Avoiding these formats as PDFs can dramatically reduce accessibility remediation workload.

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The Hidden Cost of PDFs

Accessible PDFs often require significantly more work than other formats.

Unlike Word or HTML, PDFs frequently require manual accessibility repairs, including:

• Rebuilding document tags

• Correcting reading order

• Tagging figures and tables

• Removing artifacts

• Fixing heading structure

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Typical Remediation Time Comparison

In many cases, a PDF can take 5–10 times longer to remediate than the same content created properly in Word or HTML.

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Key Takeaway

Use PDFs only when the format itself is essential.

Whenever possible:

• Use HTML for web content

• Use Word for editable documents

Selecting the appropriate format before creating a document is one of the most effective ways to reduce accessibility remediation workload while improving access for all users.