PDF Form Design

PDF Form Design

Carmen Matthews
AccessU
May 15, 2018

Texas Workforce Commission

accessibility@twc.state.tx.us
May 11, 2018
PDF Form Design

Table of Contents
Introduction ......................................................................................... 1
Planning Your Form: Formatting the Source Document .............................. 3
Content ............................................................................................3
Font Selection and Size ...................................................................... 5
Layout..............................................................................................5
Using Tables for Layout ...................................................................7
Color ................................................................................................9
Convert from Word to PDF ................................................................... 10
Formatting the PDF............................................................................. 12
Delete the Existing Tags ................................................................... 13
Add the Form Fields ......................................................................... 15
Set/Verify Form Field Properties ........................................................ 16
Add Tags to the Document................................................................ 21
Run the Accessibility Full Check ............................................................ 22
Perform Manual Accessibility Tests........................................................ 25
Keyboard ........................................................................................ 25
Screen Reader................................................................................. 26
Change Reading Options for Large Files ........................................... 26
Set PDFs to Open in Acrobat Pro or Reader ............................................ 29
Change Internet Explorer Settings for PDF Files...................................... 29
Conclusion ......................................................................................... 30
References .......................................................................................... I

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Introduction

“PDF” stands for “Portable Document Format”. It is an open standard

developed by Adobe, and is designed for print. We prefer PDF format to
other formats, such as Word or Excel, when creating “electronic paper
forms” for a few reasons. PDF format:

• Allows for single file distribution – Unlike a Word document, a

PDF will look the same everywhere. Unlike a Web page, a PDF can be
attached to an email and distributed independently.

• Provides a free, widely-distributed reader – Adobe Reader is

free and most people already have it available on their computers.
Other readers also exist, including PDF readers built into browsers.1

• Gives document access control / print control – It is possible to

discourage users from editing the content of the document in a PDF
in ways that are not possible in Word documents.

• Allows for electronic navigation of all text and headings –

Word forms must be locked down which limits interaction with text.
Excel does not provide true headings which limits options for creating
document structure.

1 Adobe Reader is the only PDF reading application accessible to screen

readers and PDFs must be opened in the Adobe Reader desktop application –
not the browser plugin – for a screen reader to work.

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We accept that a preference for PDF forms over other types of electronic
forms may be controversial. We recognize that PDF’s:

• Have a bad reputation among screen reader users. While PDFs

can be made very accessible, this often does not happen. Also, many
users may not know to open the PDF using Adobe Reader2, rather
than the browser plugin.

• Are not always appropriate for web presentation. In general, a

Web page is the most accessible option.

When creating a PDF form, accessibility concepts should be considered

throughout the document creation process to achieve a fully accessible final
document. This booklet is not a comprehensive resource on making PDF
documents accessible. For more information about making accessible PDF
documents, refer to Create and verify PDF accessibility (Acrobat Pro)3 or
Acrobat Pro DC Accessible Forms and Interactive Documents4.

2The Set PDFs to Open in Acrobat Pro or Reader section in this document
gives you the steps to set the defaults on your computer.
3https://helpx.adobe.com/acrobat/using/create-verify-pdf-
accessibility.html#make_PDFs_accessible
4 https://www.adobe.com/accessibility/products/acrobat/creating-accessible-
forms.html

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Planning Your Form: Formatting the Source

Document

Certain steps must be taken in the source document prior to conversion to

PDF because of Acrobat’s restricted word processor options and limited
layout functions. We use Microsoft Word to create most of our form source
documents. Though there are other programs you can use to design forms,
such as InDesign or LiveCycle, Microsoft Word is readily available and
familiar to almost everyone.

The items in this section are best finalized now to save you time later. You
don’t want to discover any errors after you’ve got the whole document
tagged. When that happens, you have to essentially start over and all that
time is lost.

Content

Ensure the content of the source document:

• Asks only for the information you absolutely need. In the words of
UI/UX Designer, Ken Lee-Sanekata, “Take away as many form fields
as possible, until you can’t, and then you try some more.” Really
consider how the form is used and what its purpose is before
committing to 50 form fields when 10 would do the job.

• Is written in plain language. This applies to all text in the form:

questions, labels, and instructions. Exceptions to this would be forms
that have a niche audience, though we caution you to not use that as
an excuse to write clearly. Even forms with very specific user groups
have new people join those groups. The clearer the form’s language,
the fewer questions you will get on the back end.

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• Has good flow. Information and form fields should appear in a logical
order that does not jump around. For example, instructions typically
appear before a user is supposed to act; they are of little help after
someone has already filled out a field. Address options generally
appear in order of street, city, state, zip. Putting information out of
order increases cognitive load. If there is no logical order to a
selection of items, use alphabetical order.

• Has clear instructions. When filling out a form, users should be

clearly told what is expected. This includes small instructions like
“select one,” “select all that apply,” “fields with an asterisk are
required,” or “(optional).” This also means labeling form fields with
required formats, such as “Phone number: (xxx) xxx-xxxx,” if you
choose to use them.

• Has document information in the header or footer on each page, such

as “Form xyz, page 2.” The format of this information is at your
discretion, though if a form has two names, then both names should
appear at the top of the first page, then you can use the abbreviated
name in the header or footer.

• Uses form fields for their intended function:

o Text fields are used where the field entry can vary widely.
Examples include names, addresses and descriptions or
explanations. Ensure the field is large enough to contain the
desired entry.

o Check boxes are used where there are a set number of

selections and more than one may be selected at a time. If
“select all that apply” is applicable to that section, check boxes
should be used. The default size of checkboxes is somewhat
large, so you may want to resize it.

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o Radio buttons are used when there is a set number of

selections, but only one may be selected. If “select only one” or
yes/no is applicable to that section, radio buttons should be
used. If there are more than a handful of selections, use a
dropdown list to save space on the form. The default size of
radio buttons is somewhat large, so you may want to resize it.

o Dropdown lists are used when there are a set number of

selections, but only one may be selected. Ensure the field is wide
enough to show the text of the widest selection.

Font Selection and Size

Ensure the font selections and sizes in the source document are readable.
We recommend using 12-point Verdana for most content, though many
other fonts are considered accessible. Headings should use bigger, bolder
choices to make them stand out.

Layout

Ensure the source document’s layout:

• Is intuitive to use. Typically, that means that information reads from

left to right, top to bottom.

• Groups form fields according to function or type.

• Has consistently placed form field labels. When possible, select a

placement and stick to it, whether it be all form labels above the
fields or generally to the left. Exceptions are check box and radio
button options which typically fall to the right of the field.

• Uses headings to provide users with a meaningful sequence of

information and make the document easier to navigate. Headings are

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set with Heading styles 1 through 9 in Word, though Acrobat only

goes up to heading level 6.

• Has adequate text spacing:

o We recommend at least 1.15 line spacing within paragraphs.

o We recommend a minimum of 16-point After paragraph

spacing for a 12-point font.

o We recommend a minimum of .02 top, bottom, left, and right

spacing around text inside of tables.

• Has adequate space to contain all the answers expected for each
form field and prevent scrolling. This is especially important for forms
that will be printed. Acrobat does not have expanding form fields like
Word does. To save yourself time, test this in the source document
prior to converting to PDF. We recommend a minimum of:

o 35 characters each for first and last name or the equivalent

(71) for a full name field.

o 40 characters for address lines and city names.

o 2 characters for a state abbreviation and skipping the state list

dropdown.

o 9 characters for a zip code.

o 40 characters for an email address.

The flip side to this is not giving too much space for the size of the
expected input. You don’t want a 40-character form field to hold
something that’s a set number of characters like a date.

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Using Tables for Layout

The best way to create a paper form that has a consistent and logical layout
and that flows predictably is to use a layout table. The table will be removed
after conversion to PDF so typical table concerns are not an issue.

Following are tips for formatting a layout table in Word:

• Adjust table width in Table Properties or on the ruler in the

document view.

• Use borders to distinguish table cells. Select the table, go to the

Table Tools area of the Ribbon, choose the Design tab and click on
Borders.

• If your entire form is a table, use the top row of the table for the
logo, form title, and other information, such as the date. If you are
using paragraphs for the document title and instructions, use the top
row for the first table section heading.

• Use section headings to change subject content, group like form

fields, and to help a low-vision user quickly find a particular section.

• Use merged cells to keep like information together.

• Use split cells to separate.

• Use blank spaces to get the exact layout you want. It’s visually
pleasing when similar items line up both vertically and horizontally, if
possible.

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Figure 1 – Example Form Using a Table for Layout

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Color

Though it is important to avoid the use of color alone to convey information,

color is a great way to help sighted users navigate a form. It can be used to
make headings and instructions stand out. Using color wisely can also give
your form a more finished look.

Figure 2 – Form Before and After Showing Use of Color

When selecting colors to use in your forms, verify sufficient color contrast
ratios, so it is easy to discern text from background. We recommend
downloading the Color Contrast Analyser tool and using it to verify adequate
contrast ratio of 4.5:1 (Figure 3, item 1).

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Figure 3 – Colour Contrast Analyser Results

Convert from Word to PDF

It’s worth noting that even if your source document is fully accessible, it
won’t always convert as intended, so some items may need tweaking
anyway. Follow the steps below to convert your source document to PDF.

1. Go to File > Save As.

2. In the middle top of the window, you’ll see a place to put the file
name. Under that is a dropdown (Figure 4, item 1) to select the file
format. Select PDF (Figure 4, item 2) from the dropdown.

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Figure 4 – Save As Window

3. Select the Save button (Figure 4, item 3).

4. A tagged PDF version of your document will open in a new window. If

it does not automatically open, navigate to the location where you
saved the document and open it.

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Formatting the PDF

This section applies to all PDF forms, whether they were converted from
accessible source documents or were already PDFs. The following tasks will
be performed (or at least verified) in the PDF.

If you are unfamiliar with using Acrobat Pro, the Acrobat User Guide
workspace basics page5 will help.

PDF forms start off a bit differently than the average PDF document. Prior to
adding form fields, it is best to delete the tags from the document. Then,
after your form fields are added, you can add all the tags at once and
everything will be in the correct order. If you edit the original tags, then tag
the form fields, all the of your work will be overwritten.

To begin creation of a PDF form:

1. delete the existing tags,

2. add the form fields,

3. set and verify form field properties, then

4. add tags to the document.

The steps to do all the above tasks can be found in the sections below.

5 https://helpx.adobe.com/acrobat/using/workspace-basics.html

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Delete the Existing Tags

1. In the Tags pane, right click on Tags (Figure 5, item 1) and select
Delete Tag (Figure 5, item 2) from the resulting dropdown.

Figure 5 – Deleting Empty Tags from the Tags Pane

2. The pane will now say No Tags Available (Figure 6).

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Figure 6 – No Tags Available in Tags Pane

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Add the Form Fields

1. In the right pane, select Prepare Form. The Prepare Form screen
will appear. Note: If Prepare Form is not in the right pane, go to
Tools, then select Add under the Prepare Form icon.

2. Select the document you want to add form fields to then select
Start.

3. Acrobat will add form fields based on the layout of the document.
Form fields will not always be where you want them. There may be
extra fields or missing fields.

• To delete an extra field, right click on the field and select Delete
from the resulting menu. We recommend deleting extra fields
first, so that you don’t accidentally waste time formatting a field
you don’t need.

• To add a missing form field, select the type of field you want
from the Prepare Form ribbon (Figure 7) at the top of the screen
then click on the place in the document where you want the field
to appear. Common field selections are:

o Text field (Figure 7, item 1)

o Check box (Figure 7, item 2)

o Radio button (Figure 7, item 3). Radio buttons work as a

group. All radio buttons with the same name are one group.

o Dropdown list (Figure 7, item 4)

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Figure 7 – Prepare Form Ribbon Showing Form Field Icons

Time-saving tip: Add all of your text fields first, then use the tips in
the next section to set all the properties for these fields. After all like
properties are set, go back and add in check boxes, radio buttons, or
dropdown lists and format as needed.

4. Check the order of the form fields in the Fields pane of the Prepare
Forms tool. Drag any out of order fields to the correct place.

Set/Verify Form Field Properties

At a minimum, every form field must have a tooltip set for it in the
properties. Acrobat will automatically set the tooltip based on the label next
to the field, but we still recommend verifying the correctness of the
properties of each one.

To set the properties:

1. Double click on the desired form field to open the Properties window
(Figure 8). The name of the window will change depending on the
type of form field. The example below shows properties for a text
field, so the window is named Text Field Properties.

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Figure 8 – Text Field Properties Window, General Tab

2. On the General tab, ensure the Tooltip (Figure 8, item 1) field

correctly reflects the label on the form. Optionally:

a. Set the form field to Read Only (Figure 8, item 2). We often do
this for the signature fields of forms that are signed physically
then say something like “Signature, print and sign form” in the
tooltip.

b. Set the form field as Required (Figure 8, item 3). Note that this
setting will make the boxes around these fields red while you are
in Prepare Form mode.

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3. On the Appearance tab (Figure 9), set the font that responses will
appear in. We do not recommend using the Auto font size, as this
allows the text to shrink to a point where it is unreadable. We
recommend 12-point Verdana (Figure 9, items 1 and 2).

Figure 9 – Text Field Properties Window, Appearance Tab

4. On the Options tab, set how you want the field to handle text.

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Figure 10 – Text Field Properties Window, Options Tab

a. Leave the alignment (Figure 10, item 1) Left if the form field
entry will be text. Set the alignment Right if the form field entry
will be numerical.

b. Leave Check spelling (Figure 10, item 2) checked so that those

filling out the form will know when they have made a spelling
error.

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c. Select Multi-line (Figure 10, item 3) if the field is supposed to

receive a multiple line answer. Be sure the input field has
enough space to allow multiple lines of input. Do not select this if
the field allows room for one line of an answer.

d. Select Scroll long text (Figure 10, item 4) if you wish to allow
the user to enter more text than will fit in the input field and the
form will be used electronically. If the form is to be printed, any
words that scrolled will not show on the printed version. We
recommend turning this selection off, unless the form will never
be printed.

e. Select Limit of [x] characters (Figure 10, item 5) if the field

input is limited. Optionally, provide the character limit in the
visual form field label. If Font Size = Auto is selected on the
Appearance tab, choose a character limit that will prevent the
font from shrinking to an unreadable size.

Time-saving tip: Once the Properties window is open, you can leave
it up and select other form fields to view their properties. This saves
you many clicks along the way.

Another time-saving tip: For form fields that have similar properties,
such as those on the Appearance and Options tabs, you can select
more than one form field and set the properties for all of them at
once.

We rarely use options on the Format tab on fields that hold items such as
dates or phone numbers. If you choose to limit the format of form entries,
you should let users know by providing that information both visually (in the
source document prior to converting) and in the tooltip of the field. An
example would be a tooltip that says “Date signed: 2 digit day/2 digit
month/2 digit year” or “Date signed: dd/mm/yy” with a label such as “Date
signed: (dd/mm/yy).”

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Add Tags to the Document

After all form fields have been created, you will add the accessibility tags
back to the document. Be sure you are happy with all form field
configurations before proceeding, since going back to correct them after the
tags are created can sometimes have unpredictable results.

In the Tags pane, right click on No Tags available (Figure 11, item 1) and
select Add Tags to Document (Figure 11, item 2) from the resulting menu.
Tags will appear in the Tags pane.

Figure 11 – Add Tags to Document

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Tags not only set the order the document is navigated in, they determine
how content is read by screen readers. It is imperative that the tags in your
document correctly reflect the function a given item (text, image, table, etc.)
has and that the tags are in the correct order.

Run the Accessibility Full Check

The Accessibility Full Check is a tool you can use to ensure you didn’t miss
any key accessibility aspects. It will not catch everything in the document,
which is why we encourage you to learn and apply all the accessibility
concepts prior to running the check. However, it is a nice addition to the
accessibility process and we encourage you to run it on all your documents.
To run the Accessibility Full Check:

1. Select Accessibility in the right pane. The selections in the right

pane will change. Note: If Accessibility does not appear in the right
pane, go to Tools then select Open under the Accessibility icon.

2. Select Full Check. The Accessibility Checker Options window

appears.

3. You don’t need to change anything in the window. Select Start

Checking. Depending on how large your document is, the check may
take a minute.

4. Results will appear in the left pane (Figure 12). Anything that is in
bold is an issue. The number beside the item is the number of issues
found. If you have done everything in this manual, you should only
have two issues in bold.

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Figure 12 – Accessibility Checker Results in the Left Pane

Two issues will always be bold in the checker results: Document >
Logical reading order and Document > Color contrast. Both of these
must be checked manually. Once you have checked them, right click
on each and select Pass.

5. Use the expander beside each bold issue to expand view each item.
You may need to expand more than once (such as Alternate Text >
Figures alternate text – failed to see the list of figures without alt
text).

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Figure 13– Accessibility Checker Results Expanded

6. Once you get down to the root list of issues (the bolded items do not
have expanders), you can right click on each for guidance on how to
fix it. For simple things like alt text and document title (often referred
to in class as document properties), select Fix and a window will
open for you to edit those items. For more complex issues such as
table headers, you can select Show in Tags panel and follow the
instructions in previous sections here to fix the issue.

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7. When you feel each of your issues are fixed, right click on each and
select Check Again. You should complete the document with no
issues showing in the check.

Perform Manual Accessibility Tests

Even when you follow all of the accessibility rules, things can still be wrong
in the document. It’s a good idea to do a quick manual test of each form
prior to calling it final.

Keyboard

Keyboard accessibility is one of the most important aspects of accessibility.

Many users with motor impairment rely on keyboards to navigate
documents. A few common keys, such as Tab, arrows, Enter, and Space Bar,
are used to perform keyboard testing.

Generally, you can just tab through the document to navigate through all
the links and form fields.

• Tab to links and press Enter to open them.

• Tab to form fields, then:

o Type directly into text fields.

o Use the arrow keys to navigate through dropdown selections or

Alt + Down Arrow to expand dropdown lists.

o Use the arrow keys to navigate between radio button choices.

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Refer to Keys for navigating a PDF6 if you’d like more information about
keyboard use.

Screen Reader

Testing PDFs with JAWS is not generally required. As long as you’ve taken all
the steps outlined in this guide to make the PDF accessible, you can usually
feel comfortable that the document is accessible. However, if you have
access to JAWS, it’s a good idea to go ahead and give the PDF a final check
with JAWS and make sure everything behaves as expected. JAWS will
automatically read an entire document if you open JAWS then open the
document. This is the easiest way to test. If the document is not read
automatically, press Insert + Down Arrow.

You will also want to confirm the labels for all form fields are announced
properly by JAWS when you use the Tab key to move from field to field.

Refer to Accessing PDF Documents with Assistive Technology7 for more tips
and keystrokes.

Change Reading Options for Large Files

When reading large PDF files, JAWS will sometimes act in unexpected ways.
Depending on your PDF settings, JAWS might only read a single page at a
time. When this happens, you will not be able to use some JAWS features
effectively. For example, you cannot use JAWS heading navigation to move
through the document, since JAWS is only looking at one page at a time. Or,
if a list or a data table spans more than one page, you may not be able to
use the JAWS list or table navigation features as you would expect.

6
https://helpx.adobe.com/acrobat/using/keyboard-shortcuts.html#keys_for_navigating
_a_pdf
7
https://www.adobe.com/content/dam/acom/en/accessibility/pdfs/accessing-pdf-sr.pdf

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To avoid these issues, you will want to configure your PDF software – either
Acrobat Reader or Acrobat Pro – to read the entire document instead of only
the currently visible pages.

The Downside

If you set your Acrobat software to read the entire document, it may take
longer for JAWS to process it. For very large documents, this may take
several seconds or even a minute.

In those cases, you might want to reset your configuration to read only the
visible pages. If the PDF file is well structured, you may be able to use the
PDF bookmarks to navigate the document rather than depending on the
headings.

Configure Acrobat Reader DC (Simple Method)

Below are the steps to set Acrobat Reader DC to read the entire document:

1. Open a PDF in Acrobat Reader DC.

2. Go to Edit > Accessibility > Change Reading Options.

3. In the Change Reading Options of Current Document dialog, select

the Read the entire document radio button.

4. Press Enter to save the changes.

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Configure Acrobat Reader or Pro DC (Advanced)

Below is a more advanced way to configure the Read the entire document
option. This method works for both Acrobat Reader and Acrobat Pro DC.

1. Open a PDF in Acrobat Reader DC or Adobe Acrobat Pro DC.

2. Press Control + K or go to Edit > Preferences to open the

Preferences dialog.

3. In the Categories list, select Reading.

4. Tab to the Page vs Document combo box, found in the Screen

Reader Options section.

5. Select Read the entire document in the combo box.

6. Tab to the OK button, and select Enter to save the changes.

Configure Acrobat Reader or Pro DC (Even More Advanced)

You may have noticed another option in the Page vs Document combo box
called For large documents, only read the currently visible pages. This
option gives you a little more control over when JAWS will process the entire
document and when it will read only the current visible pages.

If you select the For large documents, only read the currently visible
pages option, you will also need to set the option called Minimum number
of pages in a large document. Once you set both of those options, JAWS
will only process the entire document if it is less than the number you
specified in the Minimum number of pages field. If the number of pages in
the document exceeds that threshold, JAWS will read only the currently
visible pages.

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If you choose this more advanced option, you must remain aware that some
documents will act differently than others. The most noticeable difference is
usually that the JAWS heading navigation feature works in some smaller
documents, but not in larger documents.

Set PDFs to Open in Acrobat Pro or Reader

Windows 10 is set by default to open PDFs in Microsoft Edge. Acrobat

functions do not work correctly in Edge, so we recommend setting your
computer to open PDFs in Pro or Reader.

Go to Make Acrobat or Reader the default owner of PDF files on Windows 108
for the steps to change this setting.

Change Internet Explorer Settings for PDF

Files

We recommend setting your Internet Explorer options to open PDF files in

Adobe PDF Reader (as opposed to a browser window). To change the default
behavior in Internet Explorer, you must disable the Adobe PDF Reader add-
on. Follow these steps:

1. Open Internet Explorer, and choose Tools > Manage Add-ons.

2. Under Add-on Types, select Toolbars and Extensions (should be

selected by default).

3. In the Show dropdown menu, select All Add-ons.

4. In the list of add-ons, select Adobe PDF Reader.

8
https://helpx.adobe.com/acrobat/kb/not-default-pdf-owner-windows10.html

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5. Select the Disable button which turns off the add-on so it does not
open PDFs in the browser.

Conclusion

That’s it in a nutshell. Pretty simple, right? We know, we know; it’s a lot.

Even though it seems like a lot of information, you will probably still have
scenarios that fall outside the scope of this document. Feel free to email us9
with questions.

9
accessibility@twc.state.tx.us

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References

Accessible PDFs User Guide. Texas Workforce Commission Accessibility

Team.

Accessing PDF Documents with Assistive Technology: A Screen Reader

User’s Guide. American Federation for the Blind Consulting and Adobe.
https://www.adobe.com/content/dam/acom/en/accessibility/pdfs/acce
ssing-pdf-sr.pdf

Acrobat Pro DC Accessible Forms and Interactive Documents. Adobe.

https://www.adobe.com/accessibility/products/acrobat/creating-
accessible-forms.html

Adobe Acrobat User Guide. https://helpx.adobe.com/acrobat/user-

guide.html

Babich, Nick (2016, July 30). 10 Rules for Efficient Form Design. UX Planet.
https://uxplanet.org/10-rules-for-efficient-form-design-e13dc1fb0e03

Chopin, Cornelius. MS Word Form to PDF Form. Department of Assistive and

Rehabilitative Services.

Creating Accessible PDF Forms Using Adobe Acrobat Pro. University of

Washington. http://www.washington.edu/accessibility/documents/pdf-
forms/

Field Length Formatting. 1099 Services.

http://www.1099services.com/1099-field-lengths.htm

Intuitive Web Design: How to Make Your Website Intuitive to Use.

Conversion XL. https://conversionxl.com/blog/intuitive-web-design-
how-to-make-your-website-intuitive-to-use/

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Lee-Sanekata, Ken (2017, November 19). 3 Best Form Design Practices for
your design process. UX Planet. https://uxplanet.org/3-best-form-
design-practices-for-your-design-process-383510b31613

Making Word 2016 Documents Accessible. Texas Workforce Commission

Training and Development Department.

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