City officials produce PDFs constantly—permit applications, zoning documents, budget reports, meeting agendas, public notices. Every PDF that goes to residents creates either an access point or a barrier depending on whether it meets accessibility standards. An inaccessible permit application prevents a visually impaired business owner from applying for the license they need. An inaccessible zoning document excludes mobility-impaired residents from understanding development proposals affecting their neighborhood.

PDF accessibility isn’t just a compliance checkbox for municipal governments—it’s a fundamental service delivery requirement. The Americans with Disabilities Act requires equal access to government services and information, and Section 508 establishes specific technical standards for electronic documents. When city officials create accessible PDFs from the start, they prevent compliance problems, avoid remediation costs, and ensure every resident can access the public information your municipality provides.

The good news: making PDFs accessible isn’t complicated once you understand the core requirements. City officials can build accessibility into their document workflow with practical techniques that add minutes, not hours, to document creation time.

The easiest way to create accessible PDFs is building accessibility into source documents before PDF conversion. Most city officials create documents in Microsoft Word, and Word includes accessibility features that transfer to PDF when you use proper conversion methods.

Use built-in heading styles rather than manually formatting text to look like headings. When you mark text as Heading 1, Heading 2, or Heading 3 using Word’s styles panel, those headings create document structure that screen readers navigate. A resident using assistive technology can jump directly to “Permit Requirements” or “Fee Schedule” sections rather than listening to the entire document sequentially. This navigation structure makes long municipal documents actually usable for people relying on screen readers.

Add alternative text to every image, chart, graph, and diagram. Right-click the image, select “Edit Alt Text,” and write a description that conveys the information visual users receive. For a zoning map, describe district boundaries and land use designations. For a budget chart, explain the data trends and key comparisons. Alt text isn’t just description—it’s information equivalence, ensuring screen reader users get the same understanding as sighted readers.

Create proper table structure using Word’s table tools. Mark header rows so screen readers announce column headings as users navigate table data. A budget spreadsheet with proper headers lets screen reader users understand which category and line item each number represents. Without proper table structure, that same spreadsheet becomes incomprehensible random numbers.

Check reading order makes logical sense. Screen readers present content in the order it appears in the document structure, not necessarily the visual layout. Multi-column layouts, text boxes, and sidebars can create illogical reading sequences unless you verify structure matches intended flow.

How you create the PDF matters as much as what’s in the source document. The wrong conversion method strips accessibility features and creates compliance failures even when the source document was perfectly accessible.

In Microsoft Word, use File → Save As → PDF and check the “Document structure tags for accessibility” option. This setting preserves heading structure, alt text, and table markup from your Word document. Never use “Print to PDF” or basic PDF export options—these methods create image-based PDFs without proper tag structure.

For existing PDFs that need accessibility fixes, Adobe Acrobat Pro provides remediation tools. Run the Accessibility Checker (Tools → Accessibility → Full Check) to identify problems. The checker flags missing tags, images without alt text, improper reading order, and other WCAG 2.1 compliance issues. Fix reported problems using Acrobat’s accessibility tools, though this remediation takes longer than creating accessible source documents from the start.

For large volumes of PDFs requiring remediation, automated platforms process documents efficiently while maintaining compliance quality. Upload documents, configure requirements, and receive remediated PDFs ready for publication—typically in hours or days rather than the weeks manual remediation requires.

The only reliable way to verify PDF accessibility is testing with the assistive technology your residents actually use. Automated checkers identify technical problems, but they can’t evaluate whether your document makes sense to someone navigating by ear rather than sight.

Download NVDA (free, open-source screen reader for Windows) or enable VoiceOver (built into Mac) and navigate your PDF without looking at the screen. Can you understand the document structure? Do headings make sense as navigation points? Does table data remain comprehensible when announced aloud? Is alt text actually informative rather than generic descriptions?

This testing reveals problems automated tools miss. You might discover that while every image has alt text, the descriptions are useless (“Image 1,” “Graph,” “Chart”). Or that reading order jumps illogically between sections. Or that your carefully designed multi-column layout creates a confusing listening experience. These user experience issues matter as much as technical compliance—a document can pass automated checks while remaining practically unusable.

Test forms specifically for keyboard navigation. Tab through form fields without using the mouse. Does tab order progress logically? Are field labels announced correctly? Can you complete and submit the form using only keyboard? Municipal permit applications and other forms create particular accessibility challenges, and keyboard testing catches problems before residents encounter them.

Making PDFs accessible becomes routine once you integrate these practices into document creation workflow. The upfront investment—learning heading styles, writing effective alt text, understanding proper table structure—pays dividends every time you create a new document. You’re not adding accessibility as an afterthought; you’re building it in from the start, preventing remediation needs before they arise.

The resources above provide immediate access to both guidance and practical tools for accessible PDF creation. Whether you’re creating your first accessible document or managing citywide compliance, the techniques and support you need are ready when you are.