You gotta pick something. Somebody made a 28mm lens, then somebody came out with a 28mm lens to compete with it. Also, sometimes a lens will be listed as 28mm, but may in fact be 27, 26, or 29.5mm. They called it a 28mm because that's what other manufacturers called theirs, and they wanted to directly compete with them. So basically, someone came up with one focal length, people found useful, then someone followed suit, then someone thought it would be useful to have another focal length, other people followed, and then someone thought it would make sense to fill the gap between the two, and more people followed. There's no specific reason for the most common focal lengths, other than companies decided to make a lens there, and consumers decided to buy that lens. It's more marketing than anything.