Move the enable line to the top of the config file and the device works as expected.
/library/Application Support/Citrix Receiver/USB.conf
# Syntax is an ordered list of case insensitive rules where # is line comment
# and each rule is (ALLOW | DENY) : ( match ( match )* )?
# and each match is (class|subclass|prot|vid|pid|rel) = hex-number
# Maximum hex value for class/subclass/prot is FF, and for vid/pid/rel is FFFF
ALLOW: vid=07C0 pid=1131 # axis controller CR939 # moved device line to top of file
DENY: vid=17e9 # All DisplayLink USB displays
DENY: class=02 # Communications and CDC-Control
DENY: class=09 # Hub devices
DENY: class=0a # CDC-Data
DENY: class=0b # Smartcard
DENY: class=e0 # Wireless controller
DENY: class=ef subclass=04 # Miscellaneous network devices
ALLOW: # Otherwise allow everything else

Device was being blocked by one of the other devices in the conf file.