Key takeaways: Publishing a webpage vs. publishing a PDF
In general, webpages:
- Can adapt to different device sizes
- Are easier to make accessible
- Load faster than files
- Are easier for search engines to find and show to constituents
- Are easier for you to manage
- Can be translated into other languages by modern browsers
In general, PDFs:
- Preserve design, illustrations, and formatting
- Are easier to print and distribute in person
- May be better for long reports you expect people to focus on (e.g. like a book)
Note: PDFs are not a good solution for locking down documents. Modern browsers make it easy to edit a PDF. Editing restrictions can also make it harder for assistive technology, to access files. If you need to keep your content consistent, a webpage is actually the most accessible way to ‘lock down’ information.
The ACCESS team has a decision tree to help you find the most accessible format for your content.
Consider your audience and purpose
The form you publish something in (e.g. a webpage vs. PDF) depends on who needs to read it and why. Think about the audience for your content, the purpose, and how people will use it at the start of your editorial process. This makes sure you choose the best format to meet your audience’s needs.
- Are a lot of your audiences using mobile devices? Webpages adjust for different screen sizes, but PDFs don’t.
- Will your content be used in person, e.g. at a kiosk or by an advocate? A PDF might be easier to print and manage.
- Will people benefit from your content being closely connected with other content, e.g. through links, videos, and dashboards? Web pages will deliver a much better experience.
Some scenarios even call for both. For example, the Department of Transitional Assistance (DTA) serves constituents both in person and through mobile devices. For this reason, they publish instructions for creating a DTA account on a webpage and as a PDF.
Consider how you will manage content
If you have to update content frequently, webpages are generally much easier. This also helps you control for older versions. If people download a PDF, they may not return to your website later to check if there’s a new version.
However, choose a PDF for designs that don’t (or rarely) change after you publish. PDFs preserve specific design and formatting, such as this Marvelous Milkweed article from MassWildlife.
Finally, webpages may make it easier to create accessible content. If you’re publishing on Mass.gov, the CMS takes care of most accessibility issues for you. PDFs generally take more work and knowledge to make accessible.
Don’t publish data in PDF format
Datasets should be published in tables on webpages or as a CSV. A data report, especially one with charts and visuals, may make sense as a PDF.
Avoid exporting Excel documents to PDF. It takes a lot of work to make these accessible.
ADA Title II: All government content must be accessible by April 2026
Title II of the Americans with Disabilities Act (ADA) says all government digital content and services must be accessible by April 24, 2026 (April 2026 for municipalities that server fewer than 50,000 people). This includes all the webpages and documents you have published. We recommend that you default to HTML. This will make it easier to meet Title II requirements.
The Mass.gov CMS is built for accessibility. If you also publish on another web platform, you should verify that its product team prioritizes accessibility.
Creating and remediating PDFs
In the future, government organizations will both design accessible PDFs and "remediate" (or fix) older ones so that they're accessible, too. This generally requires technical knowledge and specialized software (such as Adobe Acrobat Pro).
Remediating a PDF involves making sure headings are structured correctly, images have alternative text, and colors have enough contrast. This can be painful: You may need to redesign a graphic or revise text.
The ACCESS team has a guide to creating PDFs. They also offer regular live trainings.
Some organizations hire vendors to help remediate documents. Document remediation services are covered under the statewide IT accessibility services contract, ITS82.