Go: // BFS

package main

import (
	"bufio"
	"os"
		"fmt"
	"strconv"
	"strings"
)

var scanner = bufio.NewScanner(os.Stdin)

var p = [15]int{}
var g = [13][4]int {
	// -1は存在しないマス目
	{2,-1,-1,-1},
	{2,5,-1,-1},{0,1,3,6},{2,7,-1,-1},
	{5,-1,-1,-1},{1,4,6,9},{2,5,7,10},{3,6,8,11},{7,-1,-1,-1},
	{5,10,-1,-1},{6,9,11,12},{7,10,-1,-1},
	{10,-1,-1,-1},
}

/*
　  ０ １ ２ ３ ４
 0 |／|／|  |／|／|
 1 |／|　|  |　|／|
 2 |　|　|  |　|　|
 3 |／|　|  |　|／|
 4 |／|／|  |／|／|
*/

var row = [13]int{0,1,1,1,2,2,2,2,2,3,3,3,4}
var col = [13]int{2,1,2,3,0,1,2,3,4,1,2,3,2}

type wolf struct {
	m [13]int
}

type pair struct {
	first wolf
	second int
}

func abs(a int) int {
	if a < 0 {
		return -a
	}
	return a
}

func print_board(board [13]int) {
	fmt.Println("--------------------------")
	fmt.Printf("        [%2d]\n", board[0])
	fmt.Printf("    [%2d][%2d][%2d]\n", board[1], board[2], board[3])
	fmt.Printf("[%2d][%2d][%2d][%2d][%2d]\n", board[4], board[5], board[6], board[7], board[8])
	fmt.Printf("    [%2d][%2d][%2d]\n", board[9], board[10], board[11])
	fmt.Printf("        [%2d]\n", board[12])
	fmt.Println("--------------------------")
}

func main() {
	for scanner.Scan() {
		p1, _ := strconv.Atoi(scanner.Text())
		if p1 == -1 {
			break
		}
		p[0]= p1
		scanner.Scan()
		buf1 := strings.Split(scanner.Text(), " ")
		p2, _ := strconv.Atoi(buf1[0])
		p3, _ := strconv.Atoi(buf1[1])
		p4, _ := strconv.Atoi(buf1[2])
		p[1], p[2], p[3] = p2, p3, p4
		scanner.Scan()
		buf2 := strings.Split(scanner.Text(), " ")
		p5, _ := strconv.Atoi(buf2[0])
		p6, _ := strconv.Atoi(buf2[1])
		p7, _ := strconv.Atoi(buf2[2])
		p8, _ := strconv.Atoi(buf2[3])
		p9, _ := strconv.Atoi(buf2[4])
		p[4], p[5], p[6], p[7], p[8] = p5, p6, p7, p8, p9
		scanner.Scan()
		buf3 := strings.Split(scanner.Text(), " ")
		p10, _ := strconv.Atoi(buf3[0])
		p11, _ := strconv.Atoi(buf3[1])
		p12, _ := strconv.Atoi(buf3[2])
		p[9], p[10], p[11] = p10, p11, p12
		scanner.Scan()
		p13, _ := strconv.Atoi(scanner.Text())
		p[12] = p13
		S := make(map[wolf]struct{})
		st := wolf{}
		for i := 0; i < 13; i++ {
			st.m[i] = p[i]
		}
		Q := make([]pair, 0)
		S[st] = struct{}{}
		Q = append(Q, pair{st, 0})
		yet := true
		for len(Q) > 0 {
			at := Q[0].first
			// print_board(at.m)
			cost := Q[0].second
			Q = Q[1:]
			ok := true
			for i :=1; i < 12; i++ {
				if at.m[i] != i {
					ok = false
				}
			}
			if ok {
				// print_board(at.m)
				yet = false
				fmt.Println(cost)
				break
			}
			now := cost
			for i := 0; i < 13; i++ {
				if at.m[i] != 0 {
					now += abs(row[i]-row[at.m[i]]) + abs(col[i]-col[at.m[i]])
				}
			}
			if now > 20 {
				continue
			}
			for i := 0; i < 13; i++ {
				if at.m[i] == 0 {
					for j := 0; j < 4; j++ {
						if ^g[i][j] != 0 {
							at.m[i], at.m[g[i][j]] = at.m[g[i][j]], at.m[i]
							if _, ok := S[at]; !ok {
								S[at] = struct{}{}
								Q = append(Q, pair{at, cost+1})
							}
							at.m[i], at.m[g[i][j]] = at.m[g[i][j]], at.m[i]
						}
					}
				}
			}
		}
		if yet {
			fmt.Println("NA")
		}
	}
}

C++: #include<bits/stdc++.h>
#define r(i,n) for(int i=0;i<n;i++)
using namespace std;
typedef pair<vector<int>,int>P;
vector<int>v[13],s(13),t(13);
map<vector<int>,int>m;
 
int has[14];
 
 
void init(){
 
    v[0].push_back(2);
 
    v[1].push_back(2);
    v[1].push_back(5);
 
    v[2].push_back(0);
    v[2].push_back(1);
    v[2].push_back(3);
    v[2].push_back(6);
 
    v[3].push_back(2);
    v[3].push_back(7);
 
    v[4].push_back(5);
 
    v[5].push_back(1);
    v[5].push_back(4);
    v[5].push_back(6);
    v[5].push_back(9);
 
    v[6].push_back(2);
    v[6].push_back(5);
    v[6].push_back(7);
    v[6].push_back(10);
 
    v[7].push_back(3);
    v[7].push_back(6);
    v[7].push_back(8);
    v[7].push_back(11);
 
    v[8].push_back(7);
 
    v[9].push_back(5);
    v[9].push_back(10);
 
    v[10].push_back(6);
    v[10].push_back(9);
    v[10].push_back(11);
    v[10].push_back(12);
 
    v[11].push_back(7);
    v[11].push_back(10);
 
    v[12].push_back(10);
 
    int a=20;
    int p=1;
 
    r(i,13){
        has[i]=p;
        p*=a;
    }
}
 
int ha(vector<int> &x){
 
    int re=0;
 
    r(i,13){
        re+=x[i]*has[i];
    }
 
    return re;
}
 
vector<int> ah(int x){
    vector<int>y(13);
    r(i,13){
        y[i]=x%20;
        x/=20;
    }
    return y;
}
 
void BFS1(){
    s[0]=0;
    s[12]=0;
    r(i,11)s[i+1]=i+1;
    set<vector<int> >st;
    st.insert(s);
    m[s]=0;
    queue<P>q;
    q.push(P(s,0));
    while(1){
        vector<int> now=q.front().first;
        int cost=q.front().second;
        q.pop();
        if(cost==11)break;
        //cout<<m.size()<<' '<<cost<<endl;
        r(i,13)if(now[i]==0){
            r(j,v[i].size()){
                swap(now[i],now[v[i][j]]);
                if(!st.count(now)){
                    st.insert(now);
                    m[now]=cost+1;
                    q.push(P(now,cost+1));
                }
                swap(now[i],now[v[i][j]]);
            }
        }
    }
}
 
void BFS2(){
    set<vector<int> >st;
    st.insert(t);
    queue<P>q;
    q.push(P(t,0));
    while(1){
        vector<int>now=q.front().first;
        int cost=q.front().second;
        q.pop();
        if(m.count(now)){
            cout<<m[now]+cost<<endl;
            return ;
        }
        if(cost==9)break;
        r(i,13)if(now[i]==0){
            r(j,v[i].size()){
                swap(now[i],now[v[i][j]]);
                if(!st.count(now)){
                    st.insert(now);
                    if(m.count(now)){
                        cout<<m[now]+cost+1<<endl;
                        return ;
                    }
                    q.push(P(now,cost+1));
                }
                swap(now[i],now[v[i][j]]);
            }
        }
    }
    cout<<"NA"<<endl;
}
 
 
signed main(){
    init();
    BFS1();
    while(cin>>t[0],t[0]!=-1){
        r(i,12)cin>>t[i+1];
        BFS2();
    }
}

C++: #include <iostream>
#include <queue>
#include <unordered_set>
using namespace std;
typedef long long ll;

ll mov[13][4] = {
	{2,-1,-1,-1},
	{2,5,-1,-1},
	{0,1,3,6},
	{2,7,-1,-1},
	{5,-1,-1,-1},
	{1,4,6,9},
	{2,5,7,10},
	{3,6,8,11},
	{7,-1,-1,-1},
	{5,10,-1,-1},
	{6,9,11,12},
	{7,10,-1,-1},
	{10,-1,-1,-1},
};

ll sw(ll l, int i, int j) {
	int a, b;
	a = (l >> (4 * i)) & 0xfL;
	b = (l >> (4 * j)) & 0xfL;

	l &= ~(0xfL << (4*i));
	l &= ~(0xfL << (4*j));

	l |= (ll)b << (4 * i);
	l |= (ll)a << (4 * j);

	return l;
}

int main() {
	while(1) {
		ll in = 0;
		for(int i = 0; i < 13; i++) {
			int tmpin;
			cin >> tmpin;
			if(tmpin < 0)
				return 0;
			in |= ((ll)tmpin << (4*i));
		}

		queue<ll> q;
		unordered_set<ll> s;
		q.push(in);
		s.insert(in);
		int ans = -1;
		// debug
		int failcount = 0;
		for(int i = 0; i <= 20; i++) {
			queue<ll> next;
			while(!q.empty()) {
				ll l = q.front(); q.pop();
				if(l == 0xba9876543210) {
					ans = i;
					goto OUTPUT_ANSWER;
				}
				else {
					int cnt = 0;
					for(int j = 0; j < 13; j++) {
						ll t = 0xba9876543210;
						if(((l >> 4*j) & 0xfL) != ((t >> 4*j) & 0xfL)) {
							cnt++;
						}
					}
					if(cnt > 20 - i + 2)
						continue;
				}

				for(int j = 0; j < 13; j++) {
					if(((l >> (4*j)) & 0xfL) == 0) {
						for(int k = 0; k < 4; k++) {
							ll p;
							if(mov[j][k] < 0)
								break;
							p = sw(l, j, mov[j][k]);
							if(s.find(p) == s.end()) {
								s.insert(p);
								next.push(p);
							}
							else {
								failcount++;
							}
						}
					}
				}
			}
			q = next;
		}

OUTPUT_ANSWER:;
		if(ans < 0)
			cout << "NA" << endl;
		else
			cout << ans << endl;
//		cout << failcount << endl;
	}
}