Two URLs encoded in equivalent percentage, Google selects one as canonical.

I have the following two URLs (note that URL 1 contains a comma, while URL 2 contains% 2C encoded):

  1. https://example.com/hotels_page/Cleveland,%20OH,%20USA/Safe%20Hotels%20near%20University%20Circle.html

  2. https://example.com/hotels_page/Cleveland%2C%20OH%2C%20USA/Safe%20Hotels%20near%20University%20Circle.html

To my knowledge, they are actually the same URL, is that true? However, Google selects URL 1 as the canonical URL, URL 2 is marked as "Duplicate, URL sent not selected as canonical". URL 1 is marked "Indexed, not submitted on the site map".

The actions I have taken (that is, the reason Google sees two URL versions):

  1. Submit a site map containing URL 2;
  2. In a few days (Google probably hasn't crawled URL 2 on the sitemap yet), I sent URL 2 (note: it's correct, URL 2, the fully encoded version, not URL 1) in the "Search bar" top of the Google Search Console to "request indexing". However, it seems that Google Search Console interprets my submission URL in the search bar in the form of URL 1, and Google selected that "version" as the canonical version.

My question is: why does this happen? They are supposed to be the same URL (other than canonical / non-canonical), right?

Is there a way to send a URL to the Google Search Console search bar and have Google interpret the URL as "the version" of URL 2?