A PDF to Web form converter operates to establish an image of an uploaded PDF form as an HTML background image of a new Web page. The converter additionally operates to query the uploaded PDF form to determine the name and type of user-interactive fields present in the PDF form, as well as to determine the size and placement of the user-interactive fields. The converter then converts the PDF user-interactive fields to HTML fields having the same type and name, and having a size and pixel location that corresponds to the PDF field. The HTML user-interactive fields are placed atop the HTML background image to present to the user a two layer Web form (e.g., layer one: background, layer two: user-interactive fields) that appears substantially identical to the PDF form.