The homicide rate in cities needs to be lower than primarily rural or suburban or small city states. This is because cities require citizens to be more trusting of one another due to close proximity. It takes a much lower crime rate to make a city feel unsafe compared to a less populated area.
I don't understand why this concept is still hard to grasp. If you lived in a low trust high crime society would you rather live in a tenement building or have your own acreage and gun?
That being said, yes Nyc is safer than many cities thanks to Giulianis continued policies that make new York city policing closer to a right wing fever dream than many would like to admit.