On the demo site, go to https://demo-trunk.ofbiz.apache.org/ordermgr/control/orderview?orderId=WSCO10001 and click on New Shipping Address. No states are displayed for the default country, USA. Once you choose a country, states are displayed properly.
Have a look at the pattern used elsewhere in OFBiz in framework/common/webcommon/includes/setDependentDropdownValuesJs.ftl (https://fisheye6.atlassian.com/browse/ofbiz/trunk/framework/common/webcommon/includes/setDependentDropdownValuesJs.ftl). A change event calls a function, in this case getDependentDropdownValues, and there's a call to the function to set an initial value for the dependent value based on the default value of the source data.
Compare the code in https://fisheye6.atlassian.com/browse/ofbiz/trunk/applications/order/webapp/ordermgr/images/js/OrderShippingInfo.js, which sets up the change event but does not set a default value. The patch includes a call to getAssociatedStateList to fix the problem.