Who designed the ballot? Oh let me think, it was the supervisor of elections in that county.
This does not look strange to me at all. The first ballot question is for U.S. Senator (only Federal State-wide question). The ballot is arranged in three columns top to bottom, left to right.
Most people don’t read instructions. I think senator should have been near the top. It is in a weird spot.
In my state, the ballot was in landscape format. Much much easier to use. Vote for senator and governor were at the top.