Postgres 10

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CREATE TABLE T(
    State VARCHAR(5),
    city VARCHAR(5),
    year  INT,
    series VARCHAR(5),
    values INT
);
INSERT INTO T VALUES 
('s1','c1',1980,'se_1',1),
('s1','c1',1981,'se_1',2),
('s1','c1',1982,'se_1',3),
('s1','c1',1980,'se_2',4),
('s1','c1',1981,'se_2',5),
('s1','c1',1982,'se_2',6),
('s1','c2',1980,'se_1',1),
('s1','c2',1981,'se_1',2),
('s1','c2',1982,'se_1',3),
('s1','c2',1980,'se_2',4),
('s1','c2',1981,'se_2',5),
('s1','c2',1982,'se_2',6),
('s2','c1',1980,'se_1',1),
('s2','c1',1981,'se_1',2),
('s2','c1',1982,'se_1',3),
('s2','c1',1980,'se_2',4),
('s2','c1',1981,'se_2',5),
('s2','c1',1982,'se_2',6),
('s2','c2',1980,'se_1',1),
('s2','c2',1981,'se_1',2),
('s2','c2',1982,'se_1',3),
('s2','c2',1980,'se_2',4),
('s2','c2',1981,'se_2',5),
('s2','c2',1982,'se_2',6);
24 rows affected

with T0 as (
SELECT
  State,
  city,
  series || '_' || trim(both ' ' from to_char(year, '9999')) series_year,
  max(values) values_max
FROM T
group by 
  1,2,3
order by 
  1,2,3
)
select 
  State,
  city,
  jsonb_object_agg(series_year, values_max) AS data_json
from T0
group by
  1,2


state
city
data_json


s2
c1
{"se_1_1980": 1, "se_1_1981": 2, "se_1_1982": 3, "se_2_1980": 4, "se_2_1981": 5, "se_2_1982": 6}

s2
c2
{"se_1_1980": 1, "se_1_1981": 2, "se_1_1982": 3, "se_2_1980": 4, "se_2_1981": 5, "se_2_1982": 6}

s1
c2
{"se_1_1980": 1, "se_1_1981": 2, "se_1_1982": 3, "se_2_1980": 4, "se_2_1981": 5, "se_2_1982": 6}

s1
c1
{"se_1_1980": 1, "se_1_1981": 2, "se_1_1982": 3, "se_2_1980": 4, "se_2_1981": 5, "se_2_1982": 6}

state	city	data_json
s2	c1	{"se_1_1980": 1, "se_1_1981": 2, "se_1_1982": 3, "se_2_1980": 4, "se_2_1981": 5, "se_2_1982": 6}
s2	c2	{"se_1_1980": 1, "se_1_1981": 2, "se_1_1982": 3, "se_2_1980": 4, "se_2_1981": 5, "se_2_1982": 6}
s1	c2	{"se_1_1980": 1, "se_1_1981": 2, "se_1_1982": 3, "se_2_1980": 4, "se_2_1981": 5, "se_2_1982": 6}
s1	c1	{"se_1_1980": 1, "se_1_1981": 2, "se_1_1982": 3, "se_2_1980": 4, "se_2_1981": 5, "se_2_1982": 6}