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$fields['billing']['billing_state']['options'] = array(
  'carlow' => 'Carlow',
  'cavan' => 'Cavan',
  'clare' => 'Clare',
  'cork' => 'Cork',
  'donegal' => 'Donegal',
  'dublin' => 'Dublin',
  'galway' => 'Galway',
  'kerry' => 'Kerry',
  'kildare' => 'Kildare',
  'kilkenny' => 'Kilkenny',
  'laois' => 'Laois',
  'leitrim' => 'Leitrim',
  'limerick' => 'Limerick',
  'longford' => 'Longford',
  'louth' => 'Louth',
  'mayo' => 'Mayo',
  'meath' => 'Meath',
  'monaghan' => 'Monaghan',
  'offaly' => 'Offaly',
  'roscommon' => 'Roscommon',
  'sligo' => 'Sligo',
  'tipperary' => 'Tipperary',
  'waterford' => 'Waterford',
  'westmeath' => 'Westmeath',
  'wexford' => 'Wexford',
  'wicklow' => 'Wicklow'
);

<select name="county" id="county">
  <option value="Carlow">Carlow</option>
  <option value="Cavan">Cavan</option>
  <option value="Clare">Clare</option>
  <option value="Cork">Cork</option>
  <option value="Donegal">Donegal</option>
  <option value="Dublin" selected="selected">Dublin</option>
  <option value="Galway">Galway</option>
  <option value="Kerry">Kerry</option>
  <option value="Kildare">Kildare</option>
  <option value="Kilkenny">Kilkenny</option>
  <option value="Laois">Laois</option>
  <option value="Leitrim">Leitrim</option>
  <option value="Limerick">Limerick</option>
  <option value="Longford">Longford</option>
  <option value="Louth">Louth</option>
  <option value="Mayo">Mayo</option>
  <option value="Meath">Meath</option>
  <option value="Monaghan">Monaghan</option>
  <option value="Offaly">Offaly</option>
  <option value="Roscommon">Roscommon</option>
  <option value="Sligo">Sligo</option>
  <option value="Tipperary">Tipperary</option>
  <option value="Waterford">Waterford</option>
  <option value="Westmeath">Westmeath</option>
  <option value="Wexford">Wexford</option>
  <option value="Wicklow">Wicklow</option>
</select>