having crowbar issues eh... dang! I'm about done listening to those from clients. There is point of doing it costly and cost effectively, but there is only really one way to do this the right way while staying on budget.
The IRS.gov site uses a product that costs more than more than it should! However it's one heck of a system but it's not in your budget.
However Adobe does include a product with Acrobat Professional that will allow you to create what you need. "Adobe Designer" sadly this lesser known product by Adobe is the hardest of all the adobe products to use... It's riddled with issues and doesn't operate like any other program they offer! However it will do exactly what you need it to.
So if you have Adobe CS or higher you most likely have it...
You can save the Form/PDF but you cannot save completed form that was filled out, unless they have Acrobat Pro. (that's how they upsell you to the Enterprise edition that the IRS bought.)