Author: Maka Chitanava,
Economist, Public Policy Analyst
Limited access to hygiene products, information, and adequate sanitary conditions is often a hidden issue that receives insufficient attention. The stigmatization of this topic further intensifies the problem. Access to menstrual hygiene products is increasingly recognized as a matter of public health and gender equality. In recent years, policy discussions have shifted toward redefining these products not as ordinary consumer goods, but as essential necessities. In this context, the tax burden in many countries is perceived as a form of indirect discrimination.
What is happening in Georgia?
In Georgia, menstrual poverty represents a real and multidimensional challenge, driven by a combination of economic, social, and institutional factors. A 2023 study indicates that there is no systemic state policy in place to address menstrual health and hygiene—neither at the fiscal, social, nor educational level.
One of the key challenges is financial accessibility. Rising prices of hygiene products, combined with the economic vulnerability of certain population groups, create a significant barrier. Moreover, menstrual products are not subject to tax relief, which further increases their cost for end consumers. This issue disproportionately affects low-income groups and rural populations, where physical access to products is an additional concern.
Another critical aspect is the lack of knowledge and information. According to the study, a large share of participants do not have comprehensive knowledge about menstrual health, while existing sources of information (primarily the internet) are often insufficient or unreliable. This highlights that menstrual education in Georgia is not formally integrated into schools or other institutional frameworks.
The study also emphasizes social and cultural factors, particularly stigma. Menstruation remains largely a taboo subject in Georgia, limiting public discussion and making it difficult for the issue to gain political traction. As a result, the problem remains confined to the private and individual level, whereas international experience shows that effective solutions require integrated public policies—combining economic, educational, and healthcare instruments.
What is happening in other countries?
International practice shows that policies aimed at reducing menstrual poverty are gradually developing along three main directions, often applied in combination.
The first direction is ensuring universal access, where menstrual products are recognized as a basic right. One of the most progressive examples is Scotland (United Kingdom), which passed relevant legislation in 2020 and, from 2022, ensured free access to products in public spaces. Similar approaches are gradually spreading to other countries, although in different forms. For instance, in 2024, Catalonia launched a large-scale program allowing citizens to obtain reusable menstrual products free of charge through pharmacy networks, combining both social and environmental objectives.
The second direction is targeted social support, focusing on vulnerable groups, particularly within the education system. France applies this approach by providing free products in universities, schools, and other social institutions, primarily for students and low-income groups. Similarly, Ireland and other countries are developing programs to ensure access to products in schools and public institutions. International experience, including the case of New Zealand, demonstrates that such interventions directly reduce school absenteeism and improve access to education.
The third direction is price accessibility through fiscal policy. In this regard, tax reforms are widely adopted across Europe. Germany reduced VAT from 19% to 7% in 2020, France from 20% to 5.5%, while Ireland has long maintained a zero rate. The United Kingdom abolished the so-called “tampon tax” in 2021, and in recent years, Malta and Cyprus have also introduced a zero rate. A significant driver of this process was the 2022 amendment to the EU VAT Directive, which allowed member states to fully eliminate tax on this category.
Alongside these three main models, there are also decentralized approaches, such as in the Netherlands, where municipalities and non-governmental organizations provide free products in schools, libraries, and public spaces. This model is particularly effective in contexts where centralized policy is not yet fully developed.
Beyond Europe, similar trends are observed globally: Kenya was among the first countries to abolish VAT as early as 2004 and introduced free distribution programs in schools, while Canada (2015) and South Africa (2019) also moved toward tax exemptions.
The overall picture shows that the most effective results are achieved when these instruments are applied in combination—fiscal accessibility reduces price barriers, targeted programs cover vulnerable groups, and universal approaches ensure systemic and non-discriminatory access. As a result, menstrual hygiene policy is gradually shifting from a narrow fiscal issue to a broader framework of social justice and human rights, based on a simple principle: menstruation is not a luxury—it is a biological reality, and public policy should reflect this.
ACT Global’s Ongoing Study
The development of effective policies to address menstrual poverty is impossible without reliable, evidence-based, and comprehensive research. Although the issue is increasingly appearing in public discourse in Georgia, it remains a relatively under-analyzed field. To address this gap, UNFPA Georgia, within the framework of the United Nations Joint Programme for Gender Equality (UNJP4GE) and with the support of the Government of Sweden, is implementing an analytical study on menstrual poverty in partnership with ACT Global, covering fiscal, social, and institutional dimensions. The study will be completed in the second quarter of 2026, and its results will be available in both Georgian and English.
The main objective of the study is to assess the scale of menstrual poverty in Georgia and identify its underlying structural drivers through evidence-based analysis. The study focuses on several critical areas. First, it examines the market and price dynamics of menstrual hygiene products, their relationship with consumer inflation, and assesses accessibility for different population groups over the past five years. In parallel, it analyzes the cost structure and supply chain of these products, as well as the impact of fiscal factor such as VAT on final consumer prices. The study also evaluates the effects of potential tax rate changes.
An important component of the research is the assessment of menstrual hygiene-related infrastructure in both public and private schools across the country. This includes evaluating the availability of medical rooms and facilities, the presence of medical personnel, and overall accessibility of school infrastructure. Additionally, the study draws on comparative analysis of international practices, assessing selected country models in the Georgian context and determining their potential for adaptation.
