Great question.
You should use New York as the publisher’s city. Your rule citation is perfect. Braille Formats (2.3.2) also states that the preferred source for the braille title page is the print title page.
Directly below the publisher’s name on the print title page, the first city listed is New York. When the publisher’s name and city are listed at the bottom of the print title page, that is most certainly the city name to use.
The address that follows “Send all inquiries” might be the sales office or something unrelated to the publisher’s main office.