What is an "HTML-preferred" content strategy?
Introduction
OHA/ODHS accessibility policies recommend an “HTML-preferred” approach to content design. What does this mean?
HTML-preferred means that when you are creating content you should always ask the question
Does this need to be a document? For most content, publishing as accessible HTML is the best option.
Generally speaking, accessible HTML websites are easier to build and maintain than accessible documents. And they’re less costly. A content strategy built around accessible PDFs will be very difficult and expensive to maintain in the long run. State agencies must reduce their reliance on PDFs and prioritize publishing content to web pages as much as possible. This will ultimately result in greater accessibility and lower costs.
While it’s true that Oregon.gov uses ASPX format, ASPX files generate the HTML markup that is displayed in your web browser. So, Oregon.gov pages host HTML content.
Therefore, following an HTML-preferred strategy could mean:
- Publishing a new Oregon.gov site
- Adding a page to an existing Oregon.gov site
- Adding a new section to an existing Oregon.gov page
- Adding a new site, page or section to the OWL (OHA/ODHS intranet)
Which of these approaches you take depends on the type of content you want to publish. Make the choice that best suits your content.
All that said, there are some limited instances when making an accessible document is the most appropriate decision. How can you decide? Start by reading our Quick guide below.
Quick guide: how should you publish your content?
Is the content intended primarily for reading online?
If yes: make it an
accessible webpage.
Accessible websites are easier to build and maintain than accessible documents. It's possible to make PDFs accessible, but remediation can be time-consuming. If you don't have the proper training and tools to carry out remediation in-house, you will need to hire a third party to do it, and this will incur a cost.
Will some of your audience need to access the content on mobile devices?
If yes: make it an
accessible webpage.
An accessible web page will reflow and zoom for correct viewing on a mobile device – this is a WCAG requirement. It is possible to make PDFs reflow on a mobile screen, but the functionality is less reliable. Other document formats don’t adapt well to mobile.
Will your content need to be edited frequently after you publish it?
If yes: make it an
accessible webpage.
You can sometimes edit a PDF after it’s published, but you will probably need to remediate it again for accessibility. This adds time and cost to the remediation process. And editing directly in a PDF can break the formatting / accessibility features. A webpage needs to be built for accessibility once. Afterwards, content edits are usually easy and are unlikely to affect the site’s accessibility.
Does your content include complex elements like form fields or data visualizations?
If yes: make it an
accessible webpage.
It can be challenging to make complex elements accessible in document formats. Instead, use a form builder like MS Forms or Qualtrics for a form or survey; use data visualization software like Power BI or Tableau for data visualizations. Follow relevant accessibility guidance when working with these applications (for example, use our
Data Visualizations Toolkit).
If making a webpage truly isn’t possible, then consider an accessible PDF as your next best option. But remember that PDF forms and PDFs with complex visuals are the among most challenging / expensive to remediate.
Does your content include signature fields?
If yes: make it an
accessible webpage.
Signatures can be authenticated digitally without the need to create a document. If it truly isn’t possible to make your signable content a webpage, then consider an accessible PDF your next best option. However, bear in mind that support for accessible signature fields in PDFs can be poor, and remediation of PDF forms can be time-consuming/costly.
Do you want to ensure that your content is “locked” so that users can’t edit it?
If yes: make it an
accessible webpage.
PDFs can be edited. Word documents, even if locked, can be copied and altered. The content of a webpage can only be edited by its author(s).
Will some of your users need to print your content?
If yes: make it an
accessible webpage.
There are techniques that can a give a website a fixed layout for printing, such as CSS media queries. Here’s an excellent free webinar from Pacific Northwest ADA Center on this subject: That Doesn’t Need to be a PDF. Talk to the web developers responsible for your content about implementing these techniques in order to reduce the number of PDFs you will need to remediate.
Is your content primarily for print?
If yes: make it an
accessible PDF.
If many or most of your users will access your content in print form, it’s probably best to make it an accessible PDF. Note that 100% print-only documents should be very rare because they exclude assistive technology users. Keep in mind that even if you intend a poster to be printed out for hanging, someone else might share it as a digital file, and then it will need to be accessible.
Is the content a slide deck that you want to share widely?
If yes: make it an
accessible PDF.
PowerPoint is a challenging format for assistive technology users to consume. It’s better to convert your content to an accessible PDF for distribution.
Is the content required to be a PDF?
If yes: make it an
accessible PDF.
There may be laws, statues, or rules requiring PDF format for certain documents – for example, signed records, archival documents, and legislatively-mandated reports. Always do your research and ensure that there is a real legal reason. If there is no rule requiring you to make the content a PDF, ask yourself if it really needs to be a PDF. If a certain report has always been a PDF, but it doesn’t actually need to be one, consider making it an accessible web page instead.
Is the content simple and linear?
If yes: it may be appropriate to publish as an accessible Word document.
When it comes to simple, linear documents like meeting minutes, agendas, and memos, an accessible Word document may be the best choice. It’s easier to make a Word document accessible than it is a PDF. And unless the content is complex, there’s no advantage to using PDF format. See our Word Quick Guide for more information on how to make Word docs accessible.
Keep in mind that you can edit protect/lock a Word document if you choose to do so. This has little or no effect on the document’s accessibility. For some users, for example screen reader users, a locked document may actually be easier to navigate.
Is the content a data table?
If yes: make it an accessible
Excel sheet,
CSV file, or an
accessible webpage.
An accessible Excel file and is easier to create than an accessible table in a PDF. See our Excel Quick Guide for more information on how to make Excel sheets accessible. Correctly structured HTML tables also have strong accessibility.
Strength in Numbers
OHA and ODHS aren’t alone in recommending an HTML-preferred content strategy. Indeed, this approach is supported by many federal laws and regulations including:
As the White House Office of Management and Budget put it (in 2023):
HyperText Markup Language (HTML) is the standard for publishing documents designed to be displayed in a web browser. HTML provides numerous advantages (e.g., easier to make accessible, friendlier to assistive technology, more dynamic and responsive, easier to maintain). When developing information for the web, agencies should default to creating and publishing content in an HTML format in lieu of publishing content in other electronic document formats that are designed for printing or preserving and protecting the content and layout of the document (e.g., PDF and DOCX formats). An agency should develop online content in a non-HTML format only if necessitated by a specific user need.