Concur being based on SAP, forms are built in a kind of "no code" way. There is a generic component "list picker from data table". Usually, for that kind of components, the order is user defined based of the row position in the data table or an index column value. Like first "N/A" then "yes" the "no".
As it is obviously too complicated to manually fill all the cities by hand, this data table was probably setup by a script that didn't mind the order. In addition, the cities data was probably not filled all in one go but incrementally, even with probable late additions when there are report of missing cities.