I think the biggest factor here is the biohazardous (bodily fluids, faecal matter etc.) waste factor. Infectious diseases can live in bodily fluids (especially blood) for a very long time such as Hepatitis C which can live in dried blood for "several weeks" but is usually about a week.
Biohazardous waste (BW) should be treated with extra care to prevent the catching and spread of these diseases. Cleaners (in your example hotels but also every space where someone is cleaning up after someone else) won’t know that there is BW in a normal waste bag and might not undertake these extra steps, whereas in a sanity bag or clearly marked biohazard bag they will know what is inside. At home where you are cleaning up after yourself you can’t catch any new diseases from yourself so disposal of BW is a bit more lax.
Also, from the employer side of things there could be clauses in their insurance policy about this sort of thing to protect their employees too and any liability of infection (I am not a legal expert so this could be wrong and will definitely vary by country).
Source – WAMITAB Certified Biohazard Cleaner
When waste is wrapped in sturdy plastic or paper bags, as is the case with the sanitary bags in hotels, the people cleaning out the waste will not have to see the items which are put in the bin.
When you roll your waste in toilet paper there is a risk for leaking through or unwrapping and a big risk of people not wrapping the waste, and looking in a bin like that is rather un-nice.
It also helps with smell issues.
As indicated in comments, it is not only hotels where people use bags to bin sanitary items, some people do at home as well. That may also depend on the kind of items discarded as well as the traditions of the family and the community they live, as these things are not universal.
There are also quite a few hotels which do not provide bags or which are not providing enough of them when they clean the rooms.
It is so that the cleaners do not need to come in contact with trash containing bodily fluids. You could use paper, but many people throw it in the bin directly and do not bother wrapping it up.
Using paper could actually prove to be unhygienic as well, as it cannot contain excess fluids, but rather absorbs them and requires the person throwing the hygiene product away to come into more contact with it than just using a bag.
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