Choosing HTML over PDF format is more accessible, especially for users of assistive technology, and provides a better experience for everyone.
The function of PDFs
PDFs can be a great way to share and store documents.
When we email someone a PDF, we know they can open it and see the same layout and styling as we do. No matter what device or what operating system they’re using.
But unlike html web content, PDFs aren’t designed to be interactive and responsive to user needs. And when we overuse them as web content, we do ourselves and our audiences a disservice.
Why HTML is better for user experience and content management
Mobile-friendly
Over half (51.5%) of people use a mobile device when they visit nsw.gov.au. Our HTML pages are mobile-responsive. PDFs are not.
Better SEO (search engine optimisation)
Over half (50.5%) of our visitors come through external search engines. Our web pages are designed to optimise search – helping search engines connect users with our content. PDFs are not.
Easier navigation
HTML format allows links to specific sections on a page. This makes it easier for us to connect users directly to the most relevant content they need. PDFs can only be linked to open the document, not to jump to a specific section of information.
Accessible by design
nsw.gov.au components and templates are designed for accessibility. This includes supporting assistive technologies like screen readers and a built-in translation function. PDFs must be specially set up to meet accessibility requirements. This includes tagging and checking, using licensed software and checking for colour contrast and logical reading order.
Always up to date
Editing an HTML page ensures users see the latest version. However, if information in a PDF becomes outdated, you must:
-
- make changes to the source document
- convert it to a PDF
- re-check accessibility
- remove the existing PDF from the website and upload the new version.
Even then, there’s no way to ensure people aren't still relying on an outdated copy that they’ve saved to their computer.
How to know when PDF is the right format
Always start with the assumption that content should be in HTML.
If you or a stakeholder think a PDF version is needed, first ask:
- Does HTML-only create any downsides for the audience and purpose of the content?
- If yes, what would be the benefits of creating or retaining a PDF?
- Does the evidence (user research or analytics data) support this?
Examples of when a PDF makes sense
The NSW Health program Munch & Move creates printable resources for use in early childhood centres. Educators access these printable PDFs through the Munch & Move website. For this content, the PDF format is essential.
Annual reports are another example where the primary format may be print, with an accessible version of the PDF available online as an alternative format. If the document is large and the audience is small, it may not make sense to convert the entire document to HTML.
Forms are also an example where a supporting PDF may add value. While an interactive form is better for most people, most of the time, including a PDF version as well an HTML form can support people who may need a paper-based alternative to digital.
Equally, if the core process is paper-based – such as submitting in-person through a service centre – it’s helpful to have the PDF available online for people to print and fill out beforehand.
When not to use a PDF
If the need is theoretical, rather than evidence-based – for example, you think people may want to print it – stick with an HTML page. (After all a webpage can be printed, too.)
Remember: In the rare case when a PDF is the answer, it’s important to make it accessible and keep it up to date.
Making PDFs accessible
An accessible PDF means one that’s usable for everyone. This includes people who use screen readers, magnifiers or other assistive technologies.
Achieving PDF accessibility can be challenging – especially when you’re trying to make an existing PDF accessible, rather than creating the document with accessibility in mind from the beginning.
See our Accessible PDF guide for step-by-step instructions.
What to do with existing PDFs
Regularly audit your PDFs to make sure they’re still the best option. This includes reviewing all PDFs to decide whether they should be:
- Retired. For example if they’re no longer relevant or being used. Or if they’re for internal use and should be moved to an intranet or other internal document management system.
- Converted into HTML web content. You can do this with or without a PDF version attached. The Resource content type is designed specifically for this purpose. Learn how to create a Resource page for nsw.gov.au.
- Retained as a PDF. In this case, check all information in the PDF is up-to-date and that the PDF meets Accessibility Guidelines (WCAG) 2.1 standards. Learn how to check a PDF for accessibility.
Learn more about how to audit content.
Need any more help?
If you have any questions, or require assistance with anything mentioned on this article, submit a request via the webform.