Not all iPads have built in GPS.
Cellular models usually have a GPS controller that gets accurate positioning data from satellites (when in clear view of the sky). It can take 12.5 minutes for satellites to give an accurate lock so iOS uses Assisted GPS…
https://en.wikipedia.org/wiki/Assisted_GPS
That means cellular towers, wifi access points, bluetooth and GPS may be combined to give a 'best guess location' - apps can ask request levels of accuracy which is an attempt to reduce battery usage.
Devices without GPS use wifi geolocation (I suspect Bluetooth LE is used too), this is less accurate…
https://en.wikipedia.org/wiki/Wi-Fi_positioning_system
The wifi access point location, ID & MAC address is saved in databases at Apple & Google (for example). Your iPad scans for any visible networks & then reports the signal strengths & ID info to Apple/Google. They provide a location based on that. If access points move it can cause issues with old data. Some access points may also use random or cloned MAC addresses, which can cause issues too.
Apple collect this data via the 'Settings > General > Diagnostics and usage'. I think this may under in Privacy on iOS 8? If you have that enabled on other iOS devices it may lead to Apple or Google correcting the visible network info in your area which could eventually lead to you seeing the correct results.