The whole province of Takamire, not only the city of Hoshimura had a strict policy when it came to Omegas in heat, and Omegas in general.
It was permitted for Alphas to mate with Omegas who were in heat and not in the vicinity of their mated Alpha. Alphas could request and simply take an Omega who was in heat, and not in the presence of their mated Alpha.
This is because Omegas aren't supposed to be out in public without an Alpha escort so the council saw it as the Omega's fault they were taken to begin with.
Omegas were to learn all of this in the school they were forced to attend once they hit puberty, but many Omegas still desired a carefree life once leaving the school.
Lacy was one such Omega and so was Eziekal of the Saban pack. Unlike Lacy, Eziekal had a habit of wondering the streets by himself even when in heat and as a result has been taken many times by Alphas.
