Helping our audiences find and use information
Imagine you’re on your morning commute when you remember you need to update your details with a government service. So, you jump on your mobile and Google ‘update details for...’, quickly find the right HTML (Hypertext Markup Language) form, complete it on your phone and submit it within minutes. HTML is the backend code that forms a webpage. HTML pages are more flexible, scalable, accessible, and user-friendly, especially for those relying on assistive technologies.
But what if that form is a PDF?
In search engines, PDFs don’t rank as well as HTML content, making them harder to find. Instead of quickly accessing and completing the form, you scroll and find the search results are pointing you to a ‘How-to’ page. After multiple clicks and scanning through content, you finally open the correct PDF, the text is small, fields don’t autofill, and you’re forced to read through irrelevant information. You feel your eyes straining, so you switch on your screen reader—but the PDFs’ lack of structured headings, clear alt text, and semantic detail means the assistive technology struggles to interpret the content clearly, making it difficult to understand. And, unlike a HTML form, there’s no easy way to submit your completed document instantly.
Easier to manage content
Creating and maintaining PDF content is also trickier than HTML content.
On nsw.gov.au, accessibility is built into the components and colour schemes. If your content is in plain language with hierarchical headings, the CMS is designed to cover accessibility basics. For PDFs, you need to do this yourself.
And when information becomes out of date, HTML pages can be easily edited, and users always see the latest version. Whereas PDFs need to be completely replaced, and outdated versions may continue circulating.
The right format for your content
As nsw.gov.au is designed to serve everyone in NSW, HTML is the preferred content format. Half of our visitors find information through external search engines, and over half use mobile devices to access nsw.gov.au. HTML pages are optimised for both search performance and mobile responsiveness, PDFs are not. By prioritising HTML, the OneCX Program is making evidence-based decisions to ensure nsw.gov.au remains accessible and easy to use for all.
When is PDF the right format?
Always start by assuming HTML is the right choice. Then ask:
- Are there any downsides for the audience?
- What are the benefits of creating a PDF?
- Does the evidence support this?
For instance, the NSW Health Munch & Move program creates printable resources for educators to use in early childhood centres. Educators access these printable PDFs through the Munch & Move website. For this content, the PDF format is essential, as the PDF file type keeps design and layout uniform across all devices and printing. However, if the need is theoretical, rather than evidence-based – ‘What if people want to print it?’ – stick with a HTML page. Afterall, a webpage can be printed too.
Minimising PDF use on nsw.gov.au
When migrating websites to nsw.gov.au, the OneCX Program teams collaborate with agencies on a content audit. This includes reviewing all PDFs to decide whether they should be:
Retired. This should happen if it’s no longer relevant or being used, or if it’s for internal use, it should be moved to an intranet or other internal document management system.
Converted into HTML web content.
Migrated as a PDF. In this case, additional work is often required to improve the original PDF in line with Web Content Accessibility Guidelines (WCAG) 2.1 standards, and they must also be correctly tagged to ensure customers know how to work through the document.
NESA’s PDF success story
Previously, the NSW Education Standards Authority (NESA) registration and compliance information for non-government schools, homeschooling requirements and guidelines for overseas education providers was only available in PDF format.
During their migration to nsw.gov.au, NESA collaborated with the OneCX Program to transform these PDF manuals into HTML format. Using the multi-page resource content type, NESA significantly improved the user experience for educators, parents and school administrators, contributing to a:
- 24.8% accessibility uplift
- 42.6% uplift in Quality Assurance (credibility and trustworthiness in areas like content quality, content freshness, user experience, and security)
- 15.9% increase in Search Engine Optimisation (SEO)
- 15% increase in average page views per day.
Making PDFs accessible
If a PDF is necessary, it must comply with WCAG 2.1 standards. Accessible PDFs help people with disabilities, low levels of literacy and culturally and linguistically diverse (CALD) communities, easily access the information they need. However, it does not resolve other PDF challenges such as poor SEO, mobile experience, and content maintenance.
For guidance, see:
Creating a more connected, accessible and inclusive future for all NSW
PDFs are almost never the best solution for engaging with our communities through nsw.gov.au. In the rare case when a PDF is necessary, it’s important to make it accessible and keep it up to date.
By prioritising HTML over PDFs, the OneCX Program is making government information easier to find, use and understand. Creating a more connected and inclusive digital experience for the people of NSW, one migration at a time.
