PDF doesn't cut it for this application, because the main point of that software is that you can digitally sign the documents before sending them off. And these signatures are officially recognized and legally binding (not just some public key put on a webpage).
They really need to get their act together, though. It's unbelievably how the US government is owned by Microsoft. Practically everything that's not a supercomputer runs on Windows. It may be more convenient, but it's certainly not cost-effective (MS gets tax breaks in return, haha) and it gives MS way too much power.
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