You can use bookmark-tree
That works with FOP 1.0 (not sure it was supported earlier)
I definitely use that in FOP 1

<fo:bookmark-tree>
  <fo:bookmark internal-destination="front-page-id">
     <fo:bookmark-title>
       <xsl:text>Front Page Title</xsl:text>
    </fo:bookmark-title>
 </fo:bookmark>
......

I am using FOP Apache to generate and publish a pdf from XML and need to create bookmarks so when you open the pdf in adobe the left menu will show links to sections in the document.

I am told that the only way to do this is by using the extension fox:OUTLINE and fox:label elements. Are there any other options without using these extensions?

This really is an effort to become 508 compliant. Basically this is a Government Standard that says any PDF that is published should be designed for the hearing impaired and the 508 compliance is a set of standards to adhere to. One of the requirements is that you have bookmarks on pdfs over 9 pages.

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Jesse Schaaf
Schaafnet Consulting
www.schaafnet.com
952-463-7625