We're not talking about narcotics here. We're talking about hormonal medications, estrogen and testosterone. Estrogen for example isn't a controlled substance. Possessing DIY estrogen is not a crime. But making it or dispensing it without a license is. The pharmacist's trade is heavily regulated. Legally one cannot simply open an unlicensed compounding pharmacy in one's garage, even if you never touch controlled/scheduled medications. In theory, you could probably get in trouble for making your own Tylenol pills, simply because that would be practicing medicine without a license.
But normally police wouldn't bother with such operations. I've seen examples of raids of people running massive operations selling bootleg weight loss medications. But a volunteer group giving out hormones? Never happens. Objectively, it's simply not a good use of scarce taxpayer dollars. There are always bigger fish to fry.