Think about the last time you downloaded a document from a website. It might have been a product manual, a government form, a school syllabus, an annual report, or a policy document. Now imagine opening that file and not being able to see it, or not being able to highlight the text, or hearing a screen reader announce “blank” on every page. For millions of people with disabilities, this is a daily reality.

Web accessibility often focuses on websites and web applications, but the documents your organization publishes are just as important. PDFs, Word documents, PowerPoint presentations, and spreadsheets can all create barriers when they are not created with accessibility in mind. And because these files are frequently used for critical information, legal disclosures, and government services, inaccessible documents can be just as legally risky as an inaccessible website.

In this guide, we will cover what makes a digital document accessible, the standards that apply, the most common barriers, and the practical steps you can take to create accessible PDFs and other documents.

Why Document Accessibility Matters

Documents are everywhere. Organizations publish them for reporting, compliance, training, marketing, and public communication. When those documents are inaccessible, they exclude a significant portion of the audience.

The Reach of the Problem

According to the CDC, about 1 in 4 adults in the United States lives with a disability. Many of those disabilities affect how people interact with digital content:

  • People who are blind or have low vision may use screen readers to read documents. If a PDF is an untagged image scan, the screen reader has nothing to read.
  • People with motor disabilities may rely on keyboard navigation instead of a mouse. If a PDF’s reading order is wrong or interactive fields are not keyboard accessible, they cannot fill out forms or navigate the document.
  • People with cognitive disabilities benefit from clear structure, headings, and plain language. A wall of unformatted text is difficult to process.
  • People with low vision may need to resize text or change colors. If the document’s text is locked in a flattened image, they cannot adjust it.

The Americans with Disabilities Act (ADA) requires that public accommodations provide equal access to their services, and courts have increasingly ruled that digital documents fall under this requirement. Section 508 of the Rehabilitation Act requires federal agencies to make their electronic documents accessible. State and local governments face similar obligations under ADA Title II, with the 2024 DOJ final rule mandating WCAG 2.1 AA compliance.

If your website links to a PDF that is inaccessible, your website is not fully compliant, even if the web pages themselves are accessible. The document is part of the user experience.

For more on these legal frameworks, see our guides on ADA compliance and Section 508 compliance.

What Makes a Document Accessible

An accessible document is one that can be read, navigated, and understood by people using assistive technology. The key properties are:

  1. Text is real text, not images. Screen readers cannot read text that is baked into an image. If a document was created by scanning a paper page, the result is a picture, not readable text.
  2. Structure is encoded with tags. Headings, paragraphs, lists, tables, and links must be marked up so that assistive technology can understand the document’s structure and navigate it.
  3. Reading order is logical. When a screen reader moves through the document, it should follow the visual reading order. If the reading order is scrambled, the content becomes confusing.
  4. Images have text descriptions. Charts, diagrams, photographs, and other visuals need alternative text that conveys their meaning.
  5. Color is not the only way information is conveyed. Charts that rely solely on color to distinguish data series are inaccessible to people who are colorblind or using screen readers.
  6. Interactive elements are keyboard accessible. Form fields, buttons, and links in a PDF must be operable without a mouse.
  7. The document has a title and metadata. The document title helps users identify what they are reading, especially when multiple files are open.

For a broader look at these principles in the context of web accessibility, see our guide on how to design for accessibility.

Understanding PDF Accessibility

PDFs are the most common document format on the web, and they are also the most commonly inaccessible. Understanding why requires a basic look at how PDFs work under the hood.

Tagged vs Untagged PDFs

A PDF can be either tagged or untagged. Tags are hidden structural markers embedded in the file that describe the document’s content organization. They tell assistive technology what is a heading, what is a paragraph, what is a list, what is a table, and what is an image.

An untagged PDF is essentially a visual layout with no machine readable structure. A screen reader encountering an untagged PDF will struggle to read anything meaningful. It may announce blank pages or read text in a jumbled order.

A tagged PDF, by contrast, provides a structure tree that mirrors the document’s visual layout. This is what makes the document navigable for screen reader users.

The PDF/UA Standard

PDF/UA (Universal Accessibility) is the international standard for accessible PDF documents, defined in ISO 14289-1. It provides specific technical requirements for creating accessible PDFs, including:

  • The document must be tagged.
  • Tags must be semantically correct (headings marked as headings, lists marked as lists, etc.).
  • The reading order must be logical and consistent.
  • All non text content must have alternative text.
  • Color contrast must meet specified ratios.
  • The document must have a title.
  • Fonts must be embedded so the document renders consistently.

PDF/UA is the document accessibility equivalent of WCAG for web content. In fact, many organizations that need WCAG compliant documents use PDF/UA as their conformance target.

How WCAG Applies to Documents

WCAG was written for web content, but its principles apply directly to documents. Here are the most relevant criteria:

  • 1.1.1 Non text Content: Images, charts, and graphics need text alternatives.
  • 1.3.1 Info and Relationships: Structural relationships (headings, lists, tables) must be programmatically available.
  • 1.3.2 Meaningful Sequence: The reading order must make sense.
  • 1.4.1 Use of Color: Color alone must not be the only way to convey information.
  • 1.4.3 Contrast (Minimum): Text must meet minimum contrast ratios against its background.
  • 1.4.5 Images of Text: Avoid using images of text when real text can achieve the same result.
  • 2.4.2 Page Titled: The document must have a descriptive title.
  • 2.4.6 Headings and Labels: Headings and labels must be descriptive.

For more on WCAG levels and criteria, see our guide on the levels of WCAG compliance.

Common Document Accessibility Barriers

Let us look at the most frequent problems that make documents inaccessible.

1. Scanned PDFs

When a paper document is scanned to PDF, the result is a series of images. There is no real text, no tags, and no structure. A screen reader user gets nothing.

The fix: Use optical character recognition (OCR) to convert the scanned images into readable text, then add tags. Most PDF authoring tools, including Adobe Acrobat Pro, have built in OCR capabilities.

2. Missing Tags

Even a PDF created from a word processor can be untagged if accessibility settings are not enabled during export. Without tags, screen readers cannot navigate the document structure.

The fix: Always enable the “Create accessible PDF” or “Tagged PDF” option when exporting from Word, PowerPoint, Google Docs, or other tools.

3. Incorrect Reading Order

A document might look perfectly fine visually, but the tagged reading order could be wrong. This happens when text boxes, columns, or sidebars are placed in a way that does not match the visual flow. A screen reader might read a sidebar before the main content, or jump between columns in the wrong sequence.

The fix: Use the reading order tool in Adobe Acrobat Pro (or equivalent software) to review and correct the order in which tags are presented.

4. Missing Alternative Text for Images

Images in documents need alt text just as they do on web pages. Charts, diagrams, logos, and photographs all require text descriptions. Without them, screen reader users miss critical information.

The fix: Add alternative text to every image in your source document (Word, PowerPoint, etc.) before exporting to PDF. In Acrobat Pro, you can also add or edit alt text in the accessibility tools.

5. Inaccessible Tables

Tables in documents are often created by drawing cells manually, which produces no structural markup. A screen reader user hears cell contents without knowing which column or row header applies to each cell.

The fix: Use the table tools in your word processor to create tables with header rows. When exporting to PDF, make sure table tags are preserved. In Acrobat Pro, verify that table headers are tagged as <TH> cells with appropriate scope.

6. Poor Color Contrast

Documents sometimes use light gray text, low contrast color combinations, or small font sizes that are difficult to read. This affects people with low vision and color vision deficiencies.

The fix: Ensure text meets a minimum contrast ratio of 4.5:1 for normal text and 3:1 for large text. Use high contrast color combinations. For more on this topic, see our guide on color blindness and web accessibility.

7. Color Conveying Information

Charts and graphs that use color alone to distinguish data series are inaccessible. If you remove the color, the information should still be understandable.

The fix: Add patterns, labels, or direct annotations to charts so that meaning does not depend on color alone.

8. Inaccessible Forms

PDF forms with fillable fields are common in government, healthcare, and financial services. But if the form fields are not properly tagged and labeled, screen reader users cannot fill them out, and keyboard users cannot navigate them.

The fix: Use proper form field tools to create fillable fields. Label every field with a tooltip and a visible label. Ensure the tab order follows the visual order of the form. Test with keyboard only navigation.

9. Missing Document Language

If a PDF does not specify its language, screen readers may use the wrong pronunciation engine. A document written in English might be read with a Spanish or French voice, making it incomprehensible.

The fix: Set the document language in the PDF properties. In Acrobat Pro, this is under File, Properties, Advanced, Language. When exporting from Word, the language is typically included automatically.

10. Images of Text

Some documents use images containing text instead of actual text. This is common in banners, headers, and decorative graphics. Screen readers cannot read text inside an image.

The fix: Use real text wherever possible. If you must use an image that contains text, provide equivalent text in the alt text or in the surrounding content.

How to Create Accessible Documents

Now for the practical process. Here is how to create accessible documents from start to finish.

Step 1: Start With an Accessible Source

The best way to create an accessible PDF is to start with an accessible source document. Whether you are using Microsoft Word, Google Docs, or LibreOffice Writer, the principles are the same.

Use heading styles. Do not just make text bold and large to create a heading. Use the built in heading styles (Heading 1, Heading 2, Heading 3). These styles create the structural tags that screen readers use to navigate.

Use real lists. Use the list tools to create bulleted and numbered lists. Do not type bullet characters or numbers manually.

Use proper table structure. Create tables using the table tool, and designate header rows. Do not use tabs or spaces to simulate a table.

Add alt text to images. Right click on each image and add alternative text in the format options. Keep it concise and descriptive.

Use descriptive link text. If you include hyperlinks, make sure the link text describes the destination. Do not use “click here.”

Set the document title. In Word, go to File, Info, and set the document title in the properties panel. This becomes the PDF title.

Use sufficient contrast. Choose text and background colors that meet minimum contrast ratios.

Step 2: Export to Tagged PDF

When you export or save as PDF, make sure accessibility options are enabled.

In Microsoft Word: Go to File, Save As, choose PDF, then click Options. Check “Document structure tags for accessibility” and “Create bookmarks using headings.”

In Google Docs: Go to File, Download, PDF Document (.pdf). Google Docs automatically creates tagged PDFs with heading structure.

In PowerPoint: Go to File, Export, Create PDF/XPS. Check “Document structure tags for accessibility.”

In LibreOffice: Go to File, Export As, Export as PDF. On the Accessibility tab, check “Tagged PDF” and “Export automatically inserted blank pages” (which helps with page navigation).

Step 3: Verify and Repair in Adobe Acrobat Pro

After exporting, open the PDF in Adobe Acrobat Pro and run the accessibility checker:

  1. Go to Tools, Accessibility.
  2. Click “Full Check” to run the accessibility checker.
  3. Review the report for any failed criteria.
  4. Use the “Reading Order” tool to fix any reading order issues.
  5. Use the “Autotag Document” feature if tags are missing or incorrect.
  6. Add or correct alt text on any images that are missing it.
  7. Verify the document language is set.
  8. Check the document title in the properties.

Step 4: Test With a Screen Reader

Run the same testing you would do for a web page, but on the document:

  • Open the PDF in a screen reader (NVDA with Firefox, or VoiceOver on Mac).
  • Navigate using heading commands to verify the heading structure.
  • Check that images are announced with their alt text.
  • Verify that tables are read with their headers.
  • Fill out any form fields using keyboard only navigation.
  • Confirm that the reading order makes sense from top to bottom.

For guidance on screen reader testing, see our guide on screen reader accessibility.

Step 5: Test With Automated Tools

Several tools can check PDF accessibility:

  • Adobe Acrobat Pro Accessibility Checker: The most comprehensive tool for PDF accessibility. It checks for tags, reading order, alt text, contrast, and more.
  • PAC (PDF Accessibility Checker): A free tool that validates PDFs against the PDF/UA standard. It provides a detailed report and a screen reader preview.
  • CommonLook PDF: A commercial tool that guides users through remediating PDFs against WCAG and PDF/UA standards.
  • axe Accessibility Linter: For source documents, axe can check Word and HTML content for accessibility issues before export.

For more on accessibility testing tools, see our guide on accessibility testing tools.

Accessibility Beyond PDFs

PDFs get the most attention, but other document formats also need to be accessible.

Word Documents

Microsoft Word has robust accessibility tools built in. The Accessibility Checker (Review, Check Accessibility) scans the document for common issues and provides fix recommendations. Word documents are often more accessible than PDFs because the structure is native and editable.

If you publish Word documents on your website, run the Accessibility Checker before publishing, and fix all issues it reports.

PowerPoint Presentations

Presentations have their own accessibility considerations:

  • Use built in slide layouts to ensure proper reading order.
  • Add alt text to all images and charts.
  • Use the Accessibility Checker before sharing.
  • Ensure sufficient contrast between text and slide backgrounds.
  • Add speaker notes that summarize visual content for screen reader users.
  • Avoid rapid animations or flashing content that could trigger seizures.

Excel Spreadsheets

Spreadsheets can be made accessible by:

  • Using clear, descriptive sheet names.
  • Adding alt text to charts and images.
  • Using header rows and columns so screen readers can navigate the data.
  • Avoiding merged cells, which confuse screen reader navigation.
  • Using the Accessibility Checker to catch issues.

HTML and EPUB

Sometimes the most accessible document format is not a PDF at all. HTML and EPUB are inherently more accessible than PDF because they reflow to any screen size, support text resizing, and work naturally with assistive technology.

Consider whether a PDF is the right format for your content. If the content is primarily text and can be presented as a web page, an HTML version will be more accessible by default. For longer publications like books and reports, EPUB provides a reflowable, accessible alternative to PDF.

Building a Document Accessibility Workflow

Creating one accessible document is good. Building a process that ensures every document your organization produces is accessible is better. Here is how to do it.

1. Set Standards

Decide on a standard for document accessibility across your organization. WCAG 2.1 AA and PDF/UA are the most widely recognized benchmarks. Make these standards part of your content style guide and onboarding documentation.

2. Train Your Team

Most document accessibility issues are not caused by bad tools. They are caused by people who do not know the accessibility features exist. Provide training on:

  • Using heading styles instead of manual formatting.
  • Adding alt text to images.
  • Creating accessible tables.
  • Enabling tagged PDF export.
  • Running accessibility checkers.

For guidance on accessibility training, see our article on basic ADA website accessibility training.

3. Use Templates

Create accessible templates for your most common document types: reports, memos, presentations, forms, and newsletters. When the template already has proper heading styles, accessible table structures, and alt text prompts, content creators are more likely to produce accessible documents without extra effort.

4. Build Accessibility Into Your Review Process

Before any document is published, it should pass an accessibility check. Add this step to your publishing workflow:

  1. Run the Accessibility Checker in the source application.
  2. Fix all reported issues.
  3. Export to tagged PDF.
  4. Run the Adobe Acrobat Pro Accessibility Checker.
  5. Fix any remaining issues.
  6. Test with a screen reader for critical documents.

5. Maintain a Document Inventory

Keep track of the documents your organization has published and their accessibility status. When standards change or new issues are discovered, you need to know which documents need updating.

6. Prioritize Remediation

If you have a backlog of inaccessible documents, prioritize based on:

  • How many people use the document.
  • Whether it contains critical information (forms, legal notices, health information).
  • Whether it is required for compliance (government, education, healthcare).
  • How easy it is to remediate.

Start with the documents that have the highest impact and work your way through the backlog.

Quick Checklist for Accessible Documents

Use this checklist for every document you publish:

  • The document has a descriptive title.
  • Headings use built in heading styles (Heading 1, Heading 2, etc.).
  • Lists use the list tool, not manual bullets or numbers.
  • Tables use proper header rows and are not used for layout.
  • All images, charts, and graphics have alternative text.
  • Text meets minimum contrast ratios (4.5:1 for normal text).
  • Color is not the only way information is conveyed.
  • Links use descriptive text, not “click here.”
  • The document language is set.
  • The PDF is tagged.
  • The reading order is logical.
  • Form fields are labeled and keyboard accessible (for PDF forms).
  • The document passes an accessibility checker with no errors.

The Bottom Line

Accessible documents are not optional. They are part of your overall accessibility obligation, and they affect real people who depend on assistive technology to read, work, and participate in public life. When your PDFs, Word documents, and presentations are accessible, you are making sure that the information you publish reaches everyone, regardless of how they access it.

The good news is that creating accessible documents is not difficult once you know the process. It starts with using the right tools, following structural best practices, and checking your work before publishing. The steps are simple, but the impact is significant.

Ready to make sure your website and the documents it links to are accessible? Run a free scan with Accessible Metrics and get a detailed report against WCAG 2.1 AA standards. We check your pages for the accessibility issues that matter most, so you can fix them and serve every visitor.