The function signature of toSortedMap is defined as:
fun <K : Comparable<K>, V> Map<out K, V>.toSortedMap(): SortedMap<K, V>
The sort order thus is defined by the comparison logic defined while implementing Comparable by the type K resembling the keys.
For numeric and string values, this is most likely the intuitive ascending sort order. For custom types, e.g. User, a custom implementation to fulfill the Comparable interface must be provided.
Alternatively there is a second signature, which allows to provide a custom Comparator<in K> to make use of a custom sort order, if the keys of type K don't implement Comparable<K> or this implementation does not fullfil the expected ordering.
fun <K, V> Map<out K, V>.toSortedMap(
    comparator: Comparator<in K>
): SortedMap<K, V>
Additional information can be found in the documentation of SortedMap and Comparable<T>.