Things to Consider
Types of pad
An unusual topic you may think, but one that needs to be discussed.
Most women in western society wear underpants (knickers, panties - whatever you call them). These are "normal" for us. However it may surprise you to know that underpants in this form have only been around since about the 1920s to 1930s. Before then women would wear loose fitting crotchless "bloomers", and before then, nothing at all. See the underwear section of the Museum of Menstruation for more information on the history of undergarments.
So, in many countries where menstrual product donations would be needed, they may not have underpants either. This may not be because they cannot afford underpants, but may be because the western tradition of wearing such garments is not "normal" for them.
Usually donations of menstrual pads need to be accompanied with donations of underpants as well. This however is problematic, as underwear must be correctly fitting to be useful with pads (particularly cloth pads), and it is impossible to be able to correctly fit every woman if the underpants aren't specifically sized for them.
The solution to this could be to provide belted pads instead, or at least to provide some underpants with your pad donations.