Are all PDFs affected by the BFSG from 28 June 2025?

No. The BFSG applies to certain services provided to consumers after 28 June 2025. PDFs provided as part of such a service (such as a contract document, form or product information from an online retailer) generally fall within scope. Exemptions include office file formats published before 28 June 2025 and archived content that is neither updated nor revised after that date (Section 1(4) BFSG). Service contracts concluded before 28 June 2025 may continue unchanged until they expire, but no later than 27 June 2030 (Section 38 BFSG). Micro-enterprises that offer or provide services are exempt altogether: fewer than ten employees and an annual turnover or balance sheet total of no more than two million euros. For a precise assessment of your obligations, we recommend speaking with our BFSG specialists.

Which tools do you use to check accessible PDFs?

We use PAC 2024 (PDF Accessibility Checker) as our primary tool for checking against the Matterhorn Protocol. We also use Adobe Acrobat Pro for tag inspection and the reading order view. For forms we additionally and systematically check tab order and field tooltip output.

What does remediation of an existing PDF cost?

Standard per-page remediation starts at €4.90 per page (net) plus a minimum charge of €149 per document for setup, PAC 2024 check and metadata. Complex documents with forms, tables or heavily graphic layouts range from €9.90 to €14.90 per page after review. The effort depends on length and layout: a simple text PDF requires considerably less work than an extensive annual report. Send us a sample document — you will receive a binding fixed-price quote per page.

Can we create internal PDFs accessibly ourselves?

Yes, with the right knowledge, accessible PDF production from source files (Word, InDesign, PowerPoint) is possible internally. The prerequisites are correct use of styles, configured accessibility export and alt texts for images. We offer training and template creation so your team can produce new documents with low barriers from the outset. Our accessibility training covers accessible PDF creation in the content editor training.

How does PDF/UA differ from an ordinary tagged PDF?

A tagged PDF contains basic tag information that screen readers can read – but without defined quality standards. PDF/UA per ISO 14289-1 precisely specifies which tags must be present, how they must be hierarchically structured, that all images must have alt texts and that reading order must be correct. PDF/UA is thus the testable level above a simple tagged PDF and the international ISO standard for accessible PDF documents.

Do scanned PDFs also need to be accessible?

Scanned PDFs are purely image-based and contain no machine-readable text – screen readers therefore cannot read them directly. For accessibility purposes, they must either be converted into searchable PDFs via OCR (optical character recognition) and subsequently tagged, or replaced by an accessible re-production from the source file. For older document archives we assess together which approach is economically sensible.

Accessible PDFs: Documents That Work with Screen Readers

Missing tags, incorrect reading order and unlabelled form fields make PDFs unusable for screen reader users. We prepare your documents to the PDF/UA standard — checked against the Matterhorn Protocol and from €4.90 per page.

Request a free initial consultation All services

From €4.90 per page PDF/UA · ISO 14289-1 Own accessibility statement published

In short and in plain language

This page is about accessible PDFs. A PDF is a file. It can be a form or a contract, for example.

Many PDFs do not work well with a screen reader. A screen reader is a program. It reads the text out loud.

We rework your PDFs so a screen reader can read them. We set the order in which the text is read. Images get a text. Form fields get a label.

We check the files with a tool and against fixed rules. We also help if you have a large stock of old files.

Send us a sample PDF. The first talk is free. Write to us or give us a call.

Key figures

301 549 · requirements for documents

ISO

14289-1 · PDF/UA standard

136

failure conditions in the Matterhorn Protocol

WCAG

reference and severity for every finding in the report

Transparent fixed price

from €4.90 per page (standard layou

Standard text PDF: €4.90 per page
Forms, tables, complex layouts: €9.90 to €14.90 per page
Document inventories: tiered volume price after review

Send a document for a fixed-price quote Free initial consultation: +49 5123 9579000

plus a minimum charge of €149 per document (setup, PAC 2024 check, metadata). Complex documents with forms or tables €9.90 to €14.90 per page after review. Violations of the BFSG can incur fines of up to €100,000 under §37. All prices net, plus VAT.

Prices as of October 2026.

The Barrierefreiheitsstärkungsgesetz (BFSG) applies not only to websites: the digital information required to provide a service must also be made perceivable, operable, understandable and robust (Section 12 BFSGV). This can include PDFs offered for download as part of the service – such as contracts, forms, product sheets, price lists. EN 301 549 is generally used as the technical benchmark; for PDFs, its requirements are usually implemented via the PDF/UA standard. Without correct tag structure, consistent reading order and descriptive alternative texts, these documents are hard or impossible to use for many people with disabilities, such as screen reader users. Just over one in eight residents of private households had an officially recognised disability in 2019, that is 13 percent (Statistisches Bundesamt, Mikrozensus 2019). Our remediation starts at €4.90 per page (standard layout). We assess our own website against WCAG 2.2 AA ourselves; status and known limitations are set out in our accessibility statement.

How accessible PDFs differ from ordinary PDFs

PDF/UA · ISO 14289 · Matterhorn protocol

The building blocks of an accessible PDF

An accessible document is created from the interplay of these features

PDF/UA-conformant document

Tagged structure · H1–H6, P, L, TableLogical reading orderAlt text for graphicsDocument language de-DEContrast ≥ 4.5:1Labelled form fieldsTitle & metadataBookmarks & navigation

Matterhorn checkpoints31/31passed

Tagged pages48/48complete

Open errors07 fixed

Fixed price PDF/UAfrom €4.90 per page

PAC 2024Automated check passed

Example PDF/UA test report: building blocks of an accessible PDF, Matterhorn checkpoints and finding status at a glance. Values are illustrative.

An ordinary PDF can look exactly the same on screen as an accessible PDF – the decisive difference lies in the invisible document structure. Screen readers such as NVDA, JAWS or VoiceOver do not read visual layouts; they require a logical structure of tags that give the document semantic meaning. If these tags are missing or incorrectly applied, a screen reader user receives noise of disconnected text, skipped content or no output at all instead of structured information.

Particularly insidious: many PDFs were originally created for print, not digital consumption. Documents produced in Adobe InDesign, Microsoft Word or a CAD system and exported as PDF often contain no or only incomplete structure tags without a deliberate accessibility setup. Clicking the export button is not enough – it takes a well-considered production process that integrates accessibility from the outset. Our team accompanies you in anchoring accessible design in document production as well.

The four core areas of accessible PDF documents

Structure Tags and Document Hierarchy

Every content element of a PDF must be tagged to define its meaning: <H1> to <H6> for headings, <P> for paragraphs, <L> and <LI> for lists, <Table> with <TH> and <TD> for tables. Decorative elements receive the artifact tag so screen readers skip them. The tag hierarchy must match the visual layout and reflect a consistent document outline.

Reading Order and Tab Order

Screen readers follow the reading order defined in the document tree, not the visual arrangement. For multi-column layouts, sidebars, footnotes and complexly placed chart captions, the tag order must exactly match the semantic reading direction. In addition, the tab order in interactive PDFs with form fields must be correctly configured.

Alternative Texts for Graphics and Images

Every information-bearing image, infographic, chart and logo must carry a descriptive alternative text that adequately conveys the visual content to screen reader users. Decorative images receive no alt text field but the artifact tag. We review and compose alt texts in line with WCAG success criterion 1.1.1 Non-text Content.

Accessible Forms and Interactive Elements

PDF forms with input fields, checkboxes, dropdown menus and signature fields require special care: every field needs a tooltip (label) that screen readers announce. Required fields must be marked as such. The tab order must follow the logical form structure. Error messages must be programmatically associated with the relevant field.

Before and after: a barrier becomes an accessible document

The difference between an ordinary and an accessible PDF is often barely visible on screen — but decisive for screen reader users. We turn missing labels, unclear reading orders and insufficient contrast into a tested PDF/UA structure while largely preserving the familiar appearance of your document.

Form fields receive labels (tooltips) and a logical tab order
Missing tags are added, the reading order corrected in the document tree
Graphics receive meaningful alt texts per WCAG success criterion 1.1.1

Before · sample form7 barriers

Form fields without labels

No tags — reading order unclear

Graphics without alt text

Contrast 2.8:1 below the minimum

After · sample formPDF/UA conformant

All fields labelled, tab order set

Complete tag structure, correct reading order

Alt text for all graphics

Contrast raised to 4.6:1

Our process: from analysis to the tested document

Step 1

Document Analysis and Assessment

We analyse your existing PDFs with the PAC tool (PDF Accessibility Checker) and Adobe Acrobat Pro. Each document receives a findings report with identified barriers, WCAG references and a severity rating. This way you understand exactly where action is needed before we start work.

One document, one fixed-price quote

Send us a typical PDF from your inventory. We review it, tell you the per-page price and the effort — and you decide at your own pace.

Request a free initial consultation Call now: +49 5123 9579000

The PDF/UA Standard: What ISO 14289-1 Requires

The PDF/UA standard (Universal Accessibility) has been published as ISO standard 14289-1 since 2012 and forms the technical foundation for accessible PDF documents. It sets out the technical requirements for accessible PDF files and thus complements WCAG for the PDF format. The standard becomes testable through the so-called Matterhorn Protocol: 31 checkpoints with a total of 136 failure conditions, some of which can be checked by software while others usually require human judgement. PDFs that pass the Matterhorn Protocol provide the technical basis for the information in an accessibility statement under the BFSG.

BFSG and PDF Documents

The Barrierefreiheitsstärkungsgesetz applies to certain products placed on the market after 28 June 2025 and to certain services provided to consumers after that date. PDFs available for download as part of such a service generally fall within scope. In case of violations, fines of up to €100,000 can be imposed under BFSG §37. More about BFSG requirements.

Typical document types we make accessible

Forms and Application Documents

Government forms, insurance applications, registration forms and order documents – with fully labelled fields, correct tab order and screen reader-friendly hint and error texts.

Reports and Business Documents

Annual and sustainability reports, product catalogues, price lists and technical documentation with correctly tagged tables, infographics with alt texts and structured heading hierarchies.

Brochures and Marketing Material

Corporate brochures, product leaflets, presentation slides as PDF – often complex layouts and particularly prone to reading order issues. We correct column structures, flyout graphics and complex information graphics.

Training Materials and Manuals

Technical manuals, operating instructions, training slides and e-learning materials that must be fully usable by people with visual or motor impairments.

Legal Documents and Contracts

Terms and conditions, privacy policies, contracts and official notices – documents where usability by all groups is not just a requirement but a legal and ethical matter of course.

Technical Documentation

Data sheets, specifications, API documentation and technical guides with complex tables, code fragments and nested list structures correctly transferred into the tag hierarchy.

Accessible PDFs from your authoring software

The most efficient approach to accessible PDFs begins not in Acrobat but in the source file. Microsoft Word, InDesign, LibreOffice and PowerPoint all offer export options for accessible PDFs – but only if the source document is correctly structured. In practice this structure is frequently absent: headings are created with manual font size adjustments instead of styles, tables are assembled from tab stops, images have no alt texts. Our team advises you on setting up your templates and authoring processes so future documents are produced with low barriers from the start – with little additional effort per document.

Comparison: production paths for accessible PDFs

Source File Optimisation vs. Remediation

For documents whose source file is available, we recommend optimising the export process: correct styles, export settings and alt texts in the source file. For documents without a source file or with complex layouts, we carry out direct remediation in Adobe Acrobat Pro. Both paths aim at a validated, PDF/UA-compliant result.

Source file available: optimise structure in Word/InDesign/PowerPoint, then configure accessible export
Source file not available: tag structuring in Adobe Acrobat Pro (remediation)
Large document inventories: batch assessment with PAC and prioritised remediation by criticality
New production: template creation with embedded accessibility settings for your team

Path 1 — source file available

Source file

Style templates

Accessible export

PAC check

Path 2 — only PDF available

PDF

Subsequent tagging

Reading order

PDF/UA

Both paths aim at a validated, PDF/UA-conformant resultfrom €4.90 per page

What PDF Remediation Costs

PDF Accessibility: Fixed Prices per Page

Transparent fixed prices per page instead of opaque lump sums. The per-page price depends on the layout complexity; a minimum charge of €149 per document applies for setup, PAC 2024 check and metadata. All prices net.

Standard Document

Text PDFs without forms or complex tables.

from €4.90 per page

Structure tags, reading order and alt texts
Document title, language and XMP metadata set
PAC 2024 validation against the Matterhorn Protocol
Minimum charge €149 per document

Request a standard quote

Forms and tables

Complex Document

Forms, tables, multi-column or heavily graphic layouts.

€9.90–14.90 per page

Everything in the standard scope
Labelled form fields with tab order and required-field markers
Complex tables with correct header association
Check of reading order and alternative texts in the tag tree

Have a document reviewed

Document Inventory

Hundreds to thousands of PDFs, prioritised by risk.

Volume price individual

Batch analysis and priority list by criticality
Tiered per-page price by volume
Remediation in waves with progress reporting
Internal templates and training for your team

Have your inventory assessed

The final per-page price is fixed after a brief review of a sample document. To arrange this, request a free initial consultation.

Aspect	Export without an expert process	Professional PDF/UA remediation
Structure tags	Missing or incomplete	Complete and hierarchically correct
Reading order	Follows the layout at random	Semantically set in the document tree
Alt texts	Often absent	For every information-bearing graphic
Form fields	Unlabelled, silent to screen readers	Labelled with correct tab order
Testing	None or visual inspection only	PAC 2024 plus tag tree check
Evidence	BFSG requirement not verifiable	Evidence for the accessibility statement

Scope: what accessible PDFs deliver – and where limits lie

PDF/UA-compliant documents are technically accessible to screen reader users and people who navigate documents by keyboard. They form the technical basis for meeting the requirements that the BFSG and EN 301 549 place on documents. What PDF/UA does not address is the comprehensibility of the content itself: complex specialist language, unclear wording and the absence of easy-language versions are not accessibility problems in the technical sense but can nonetheless create significant barriers for people with cognitive impairments. If you are also seeking support in this area, our complementary service Easy Language addresses exactly this aspect.

Accessible PDFs do not replace an accessible website. Where possible, we recommend providing content primarily as accessible HTML pages and using PDFs only for print versions or legally required document forms. This recommendation is consistent with the BFSG approach, which demands digital accessibility across the entire user journey. Our accessible web development service accompanies you across your entire digital presence.

Bulk conversion: making existing document inventories accessible

Many organisations hold hundreds or thousands of PDFs accumulated over the years that now need to be made accessible. In such cases, full manual remediation of every document is often neither economically sensible nor realistic in terms of time. Our approach to large document inventories is guided by risk-based prioritisation: which documents are accessed most frequently? Which are indispensable for legally relevant processes (contract signing, application submission, complaint procedures)? Which target groups are most frequently affected by accessibility barriers? These questions determine the order of processing.

Batch analysis of all PDFs with PAC and check scripts to produce a priority list
Categorisation by criticality: legally relevant, frequently accessed, target-group-relevant
Remediation in waves by priority, starting with critical and high-frequency documents
Building internal templates and export workflows so new documents are produced accessibly from the outset
Progress reporting with proof of current conformance status for your accessibility statement
Training your staff for sustainably accessible document production

Quality assurance: how we test accessible PDFs

Our quality assurance comprises three successive testing levels. We start with PAC 2024 (PDF Accessibility Checker) – a free tool for automated testing of PDFs against the Matterhorn Protocol. PAC covers many requirements of the PDF/UA standard and outputs exact error locations for every failed checkpoint. This check mainly captures structural errors.

The PAC check is followed by a review of the tag structure, reading order and alternative texts in Acrobat's accessibility panel. This surfaces quality issues that automated tools accept as "present" but are content-wise inadequate – for example, alt texts that merely repeat the filename. Only when all three testing levels have been passed is a document considered accepted. The entire inspection process is transparently documented and traceable for you.

Documents beyond the standard case

The basics of tags, reading order and PDF/UA are summarised in the article on accessible PDFs and documents. For publishers, universities and sellers of digital books, the rules from the article on e-books and EPUB obligations apply in addition. And when a document contains extensive figures, the article on accessible data tables helps with the structure.

Key Takeaways

Accessible PDF remediation from €4.90 per page (standard layout) plus a €149 minimum charge per document — complex documents €9.90 to €14.90 per page
Four core areas determine accessibility: structure tags, reading order, alt texts and accessible forms
Every document is checked with PAC 2024 against the Matterhorn Protocol, with the tag tree and reading order also checked in detail
The BFSG has applied since 28 June 2025; violations can incur fines of up to €100,000 under §37
Large document inventories are handled in risk-based waves — including templates and training for in-house production

Frequently asked questions about accessible PDFs

How the website of a university department could look

The draft shows structure and handling: degree programmes you can narrow down, an application path in steps, a section on disability provisions and campus access. The university in it is invented.

Draft

University department

Department with degree filter and disability provisions

A draft for a university department: eight degree programmes can be filtered by qualification and study mode, each listing award, standard duration and entry requirements in the same order. The application is described in four steps, and a separate section covers disability provisions and the advisory service hours. On campus accessibility the draft names ramp gradient, hearing loop and tactile guidance — and what is missing.

Degree filterDisability provisionsCampus detailsSubtitles

Illustrative layout drafts. The businesses shown are fictitious; these are not client projects.