I had one like this once - and I think we solved it by scanning the form, inserting it as a bitmap into the report, then drop transparent fields over the top of it.
I considered that, but I don't think that would have solved it (and I think they already tried that). The problem is that the govt agency was using scanners to read the populated document. The scanners expected everything to be exact-size. The problem is that our printers were auto-resizing the page. In other words the problem wasn't that our text wasn't "fitting into" the little boxes - the text was fitting in just fine. The problem is that the govt was rejecting our product.
As a matter of fact, the govt agency put out a notice on their website which said (paraphrased) "If your printers resize the output, we don't know of any solution. You will have to obtain original forms and fill them out by hand with a ballpoint pen."
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