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ISO 14289-1 · Matterhorn Protocol 1.1

The PDF/UA & Matterhorn accessibility reference.

PDF/UA-1 (ISO 14289-1) is the single international standard for accessible PDF. The Matterhorn Protocol turns that standard into 31 machine-testable checkpoints and 136 failure conditions. This page explains what each of them means, which are automatable, and where the WCAGHub PDF Checker runs them for you.

  • 31 Matterhorn checkpoints
  • 136 failure conditions
  • 161 checks in our PDF tool
  • VeraPDF reference validator

What PDF/UA and the Matterhorn Protocol actually are

Two related documents that together define what makes a PDF accessible — one at the standard level, the other at the test level.

PDF/UA-1 (ISO 14289-1)

The international standard published in 2012 and amended in 2014. Specifies how a PDF must be tagged, what metadata it must carry, and which features are forbidden (untagged content, images without alt text, security that blocks assistive tech).

Matterhorn Protocol 1.1

Published by the PDF Association (2014, revised 2021). Translates PDF/UA-1 into 31 checkpoints and 136 failure conditions — telling software how to test and telling humans what to look for. It's the reference test suite.

PDF/UA-2 (ISO 14289-2)

Published 2024, based on PDF 2.0. Adds MathML, improved list and table semantics, pronunciation hints, and better support for complex scripts. Tooling support is still emerging — most compliance programmes in 2026 still target PDF/UA-1.

Relationship to WCAG

PDF/UA and WCAG overlap but aren't identical. A PDF can fail WCAG and still be valid PDF/UA if the failure is outside PDF/UA's scope (e.g. colour contrast is a WCAG concern, not a PDF/UA one). Serious compliance programmes test both.

Why PDF/UA is the test regulators actually ask for

WCAG was written for web pages. When the law requires accessible documents, it almost always reaches for PDF/UA as the PDF-specific technical norm.

EN 301 549 § 10

The European harmonised standard explicitly references PDF/UA-1 for non-web documents. Procurement under the European Accessibility Act (EAA) routinely requires PDF/UA conformance for PDFs delivered with a product or service.

Section 508 & ADA

Revised Section 508 requires that electronic documents meet WCAG 2.0 AA. US federal agencies and many state programmes use PDF/UA as the conformance test because it's machine-verifiable.

PSBAR & Equality Act

UK public sector bodies must publish accessible documents under PSBAR 2018. PDF/UA is the accepted PDF-level conformance test referenced in government accessibility guidance.

DTA & DDA

The Australian Digital Transformation Agency recommends PDF/UA-1 for all government PDFs. DDA complaints involving inaccessible PDFs routinely reference PDF/UA as the expected standard.

AODA & ACA

Ontario's AODA and federal ACA both include PDFs under their accessible information requirements. Canadian government procurement explicitly references PDF/UA.

National archives

National libraries and archives (e.g. DNB, Library of Congress, NLA) accept PDF/UA as the long-term preservation format for accessible documents — because tagging survives migration.

The 31 Matterhorn checkpoints

Every checkpoint has a number and a plain-English intent. The pills below mark whether we test it automatically (Auto), partly automatically (Hybrid), or whether human review is required (Manual).

Auto fully machine-testable — PDF Checker runs it for you Hybrid tool flags candidates; you verify Manual human judgement required

Tags & structure

  • 01 Tagged PDF Auto

    Real content (text, images, annotations) must be marked as tagged. Artifacts (headers, page numbers, decoration) must be marked as artifact. Our checker flags any untagged content or missing /MarkInfo /Marked true entry.

  • 02 Role mapping Hybrid

    Custom tag names must map to a standard PDF structure type (/H1, /P, /L, etc.). Tool checks the role map exists and is well-formed; a human confirms the mapping is semantically correct.

  • 03 Parent/child nesting Auto

    Structure elements must be nested correctly — e.g. <LI> only inside <L>, <TH> and <TD> only inside <TR>. Our 161 checks include the full VeraPDF rule set for structural nesting.

  • 04 Character encoding Auto

    All text content must have a Unicode mapping — no private-use glyphs, no font subset with broken ToUnicode CMaps. Screen readers depend on this entirely.

  • 05 Suspect content Manual

    Acrobat's “Suspect” flag in the Accessibility report marks content that looks like it may be missing tags. Matterhorn requires a human to confirm each one isn't a false positive.

  • 06 Metadata Auto

    Title, language, and the PDF/UA identifier must be present in XMP metadata. Tool checks dc:title, Catalog /Lang, and pdfuaid:part = 1.

  • 07 Dictionary Auto

    Structure tree root, /ViewerPreferences /DisplayDocTitle true, and natural language must all be declared correctly at the catalog level.

Graphics & images

  • 08 Graphics Hybrid

    Every meaningful image must be tagged as <Figure> with an Alt entry, or marked as an artifact if purely decorative. Tool detects missing alt text automatically; a human decides whether the alt text is meaningful.

  • 09 Headings Hybrid

    Headings must use the <H1>…<H6> structure types and form a logical hierarchy (no jumps from H1 to H4). Tool checks the tags and order; human confirms visual heading style matches.

Tables

  • 10 Tables Hybrid

    Real tables must use <Table>, <TR>, <TH>, <TD>. Header cells need a Scope attribute (Row / Column / Both) or an explicit Headers / ID relationship for complex tables.

  • 11 Lists Auto

    Lists must use <L> with <LI> children. Each <LI> needs a <Lbl> and <LBody>. Visually “listy” paragraphs that aren't tagged as lists are flagged.

  • 12 Math Manual

    Mathematical expressions must be tagged as <Formula> with meaningful Alt or MathML (PDF/UA-2). Our tool flags formulae that lack alt; a human writes the actual alt text.

Artifacts, syntax & optional content

  • 13 Page headers and footers Auto

    Running headers, footers and page numbers must be tagged as artifacts (pagination / header / footer). If they're left as real content, screen readers read them on every page.

  • 14 Colour and contrast Hybrid

    Information must not be conveyed by colour alone. Contrast ratios (4.5:1 normal, 3:1 large) are a WCAG concern but widely audited alongside PDF/UA. Tool samples contrast automatically where foreground+background are detectable.

  • 15 Fonts Auto

    Fonts must be embedded (full or subset) with correct ToUnicode CMaps and Widths arrays. Checker validates every font in the resource dictionary.

  • 16 Permissions Auto

    Security settings must not block assistive technology. If the PDF is encrypted, the /P bit 10 (extract for accessibility) must be set.

  • 17 Optional content (layers) Auto

    When optional content groups are used, the order must be defined and each group must have a descriptive name. Hidden layers cannot hide essential content.

  • 18 Embedded files Hybrid

    File attachments must have meaningful descriptions. Our checker flags attachments with missing descriptions; a human writes the text.

  • 19 Article threads Auto

    If article beads are present, they must respect logical reading order. Tool validates thread structure against reading order tree.

  • 20 Digital signatures Auto

    Signature fields must have accessible names and descriptions. The visible signature appearance must be tagged, not left as raw XObject content.

  • 21 Forms (non-interactive) Hybrid

    Blank lines, check boxes rendered as images, and similar “print-and-fill” forms must be either converted to interactive form fields or accompanied by an accessible alternative.

Interactive elements

  • 22 Annotations Auto

    Every annotation in the Annots array must either be tagged in the structure tree or marked as an artifact. Stamps, rubber-band highlights, and comments are common offenders.

  • 23 Tab order Auto

    Every page that contains annotations must declare /Tabs /S (structure order). Visual order, forms logic, and screen-reader order then all agree.

  • 24 Form fields Hybrid

    Every form field must have a TU tooltip (screen-reader label) and, where applicable, a T partial name. Required fields must be programmatically indicated.

  • 25 Links Hybrid

    Link annotations must be inside a <Link> structure element with a /Contents entry or a child text run that describes the purpose. “Click here” is not descriptive.

  • 26 Multimedia Manual

    Audio and video must have captions or transcripts. Our tool flags media annotations; the captions themselves need a human to verify they're accurate and synchronised.

  • 27 File attachments Hybrid

    Attached PDFs must themselves conform to PDF/UA. Attached non-PDF files must have accessible descriptions explaining their content.

  • 28 Actions Auto

    JavaScript, launch, and navigation actions must not rely on timing or sensory cues that fail for assistive tech users. Flashing content (>3 Hz) is forbidden entirely.

  • 29 XFA forms Auto

    Dynamic XFA forms are not allowed in PDF/UA-1. Static XFA is tolerated only if accompanied by an accessible AcroForm equivalent. Tool flags any dynamic XFA root immediately.

Navigation

  • 30 Navigation aids Auto

    Documents with more than a handful of pages must include bookmarks (outline entries) that reflect the heading structure. Page labels must be human-readable (e.g. “iii”, “3”, “A-3”).

  • 31 Page numbering Auto

    The displayed page number (in headers/footers) and the PDF page label must match. Mismatches confuse screen-reader navigation, cross-references, and citation workflows.

How our PDF Checker covers the Matterhorn Protocol

The PDF Checker combines 55 native detections written for human-readable reporting with 106 checks from VeraPDF — the PDF Association's reference PDF/UA-1 validator. Together that's 161 checks against the ISO standard.

Document structure

18 native checks

Tagged PDF root, role map, reading order, language declaration, title, XMP metadata, pdfuaid:part identifier, structure tree health.

Headings

2 native checks

Heading hierarchy (no skipped levels) and H1 presence on first page.

Images

6 native checks

Alt text presence and length, artifact detection, filename-as-alt rejection, decorative vs. meaningful classification.

Tables

6 native checks

Header cells, scope attributes, complex-table Headers/ID associations, summary, regularity.

Links & forms

5 native checks

Link accessible text and purpose; form tooltip (TU), label and required indication.

Colour & fonts

3 native checks

Contrast sampling at 4.5:1 / 3:1, font embedding, Unicode encoding.

Metadata

7 native checks

Title, author, XMP block, pdfuaid:part = 1, creator, modification date, language tag.

Content & navigation

8 native checks

OCR detection, reflow, flashing content, selectable text, bookmarks, page labels, tab order, viewer preferences.

VeraPDF integration

106 rules (ISO 14289-1)

Full reference validator output, merged with our native findings. Each failure includes the ISO rule ID; our AI explainer translates the raw rule text into plain language.

The seven failures we catch most often

Across thousands of PDFs scanned on WCAGHub, these are the conditions that come back fail on almost every untouched export.

No PDF/UA identifier in XMP

The pdfuaid:part = 1 declaration is missing. Without it, no validator (or screen reader) can recognise the document as claiming PDF/UA conformance. One-line fix in Acrobat Pro preflight — but it's almost always absent on export from Word.

Untagged decorative images

Logos, dividers and background shapes left as untagged content. Screen readers trip on them every time. Fix: mark them as artifact in the tag tree.

Images with filename as alt text

Alt text of image1.jpg or IMG_0042.PNG satisfies “has an alt entry” but fails meaningful-content review. Our checker recognises filename patterns and flags them.

Tables without header cells

Every cell tagged <TD>, no <TH>, no Scope. Sighted readers infer headers from bold or shading; assistive tech cannot. Fix: promote the first row and/or column to <TH> with Scope=Column or Scope=Row.

Missing document title in display

PDF has dc:title but ViewerPreferences /DisplayDocTitle is false — so the window still shows the filename. A single dictionary flip.

No language declared

Catalog /Lang is absent, so screen readers fall back to the OS default voice — often the wrong language. Trivial to fix, very common.

Form fields without tooltips

The field is present and interactive, but TU is empty. The visible label sits next to the field but isn't associated with it programmatically, so screen readers announce “edit” with no context.

Frequently asked questions

What buyers, compliance leads, and document authors ask us about PDF/UA most often.

Is PDF/UA the same thing as WCAG?

No. WCAG is a cross-format web content standard; PDF/UA is a PDF-specific technical standard. A compliant PDF typically needs to satisfy both — PDF/UA for tagging and structure, WCAG for things like contrast, readability, and cognitive load. Our checker reports against both.

Do I need PDF/UA-1 or PDF/UA-2 in 2026?

PDF/UA-1 is still the practical target for compliance in 2026. PDF/UA-2 was published in 2024 but authoring-tool and validator coverage is still catching up. Most procurement language still reads “PDF/UA-1 (ISO 14289-1)”.

Can I get PDF/UA conformance from Word?

Partially. Modern Microsoft Word export does produce tagged PDFs with basic structure, but almost always misses the pdfuaid:part identifier, viewer preferences, and complex-table headers. Expect a manual remediation pass in Acrobat Pro or a dedicated tool.

Is VeraPDF enough on its own?

VeraPDF is the reference validator for PDF/UA-1 machine-testable rules. It's excellent, but it does not test human judgement items (meaningful alt text, correct heading level, sensible reading order). That's why our checker pairs VeraPDF's 106 rules with 55 native checks plus human-review guidance.

What tools fix PDF/UA issues?

Our report gives fix guidance for Adobe Acrobat Pro, Microsoft Word, Adobe InDesign, and LibreOffice — the four environments most documents originate or get remediated in. Every detection includes the exact steps in each tool's UI.

Does a signed or encrypted PDF break PDF/UA?

Not necessarily. Signed PDFs are fine if the signature field has an accessible name and the visible appearance is tagged. Encrypted PDFs must allow content extraction for accessibility (/P bit 10). Our checker flags both conditions.

How do I claim PDF/UA conformance publicly?

Pass VeraPDF validation against PDF/UA-1, complete the manual-review Matterhorn checkpoints, set pdfuaid:part = 1 in XMP, and document the evaluation in an accessibility statement. The conformance claim is a combination of machine test + documented human review — one without the other isn't defensible.

Which jurisdictions require PDF/UA?

EN 301 549 (EU), Section 508 refresh (US federal), AODA (Ontario), PSBAR (UK), DTA guidance (AU), and most national archives all reference PDF/UA-1 as the PDF accessibility test. See the Compliance hub for per-country detail.