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>

#ifndef INCLUDE_ZOBRIST_HASH_HPP
#define INCLUDE_ZOBRIST_HASH_HPP

#include <random>
#include <iostream>
#include <typeinfo>

namespace orislib {

template<typename T, int W, int H, int STATE>
struct ZobristHash {
  typedef T hash_t;
  ZobristHash(){
    std::random_device rd;
    std::mt19937 mt(rd());
    std::uniform_int_distribution<T> dist;
    for (int h = 0; h < H; h++){
      for (int w = 0; w < W; w++){
        for (int s = 0; s < STATE; s++){
          rands[h][w][s] = dist(mt);
        }
      }
    }
  }
  template<typename TT>
  hash_t hash(TT data[H][W]){
    hash_t r = 0;
    for (int h = 0; h < H; h++){
      for (int w = 0; w < W; w++){
        r ^= rands[h][w][data[h][w]];
      }
    }
    return r;
  }
  hash_t rands[H][W][STATE];
};
}

#endif
using namespace std;
using namespace orislib;

typedef long long ll;
typedef long double ld;
typedef tuple<int, int> duo;
const int dx[] = {0, 0, 1, -1, 1, 1, -1, -1};
const int dy[] = {1, -1, 0, 0, 1, -1, 1, -1};
const int Mod = 1000000000 + 0;
//{{{ templates
#define TT_ template<typename T>inline
#define TTF_ template<typename T,typename F>inline
TT_ T sq(T x){return x*x;}
TT_ T In(){T x;cin>>x;return x;}
TT_ void Out(T&x){cout<<x;}
TT_ void sort(T&v){sort(begin(v),end(v));}
TT_ void revs(T&v){reverse(begin(v),end(v));}
TT_ void uniq(T&v){sort(v);v.erase(unique(begin(v),end(v)),end(v));}
TT_ int ubnd(T&v,typename T::value_type&x){return upper_bound(begin(v),end(v),x)-begin(v);}
TT_ int lbnd(T&v,typename T::value_type&x){return lower_bound(begin(v),end(v),x)-begin(v);}
TTF_ void inpt(T&v,int n,F f){for(v.reserve(n);n--;v.emplace_back(f()));}
TTF_ void show(T&v,F f,string d=" ",string e="\n"){int i=0;for(auto&x:v)i++&&(cout<<d),f(x);cout<<e;}
TT_ typename T::iterator minel(T&v){return min_element(begin(v),end(v));}
TT_ typename T::iterator maxel(T&v){return max_element(begin(v),end(v));}

inline void fast_io(){ios::sync_with_stdio(0);cin.tie(0);}
inline int in(){int x;scanf("%d",&x);return x;}
inline ll pow_mod(ll a,ll k,ll m){ll r=1;for(;k>0;a=a*a%m,k>>=1)if(k&1)r=r*a%m;return r;}
inline ll mod_inv(ll a,ll p){return pow_mod(a,p-2,p);}
//}}} priority_queue queue deque front stringstream max_element min_element insert count make_tuple

struct Board {
  Board(){}
  Board(const vector<vector<int>>& v){
    memset(b, '#', sizeof(b));
    for (int i = 0; i < 5; i++) b[i][5] = 0;
    for (int i = 0; i < v[0].size(); i++) b[0][2 + i] = conv_hex(v[0][i]);
    for (int i = 0; i < v[1].size(); i++) b[1][1 + i] = conv_hex(v[1][i]);
    for (int i = 0; i < v[2].size(); i++) b[2][0 + i] = conv_hex(v[2][i]);
    for (int i = 0; i < v[3].size(); i++) b[3][1 + i] = conv_hex(v[3][i]);
    for (int i = 0; i < v[4].size(); i++) b[4][2 + i] = conv_hex(v[4][i]);
    int it = 0;
    for (int i = 0; i < 5; i++){
      for (int j = 0; j < 5; j++){
        if (b[i][j] == '0'){
          cx[it] = j;
          cy[it] = i;
          it++;
        }
      }
    }
  }
  char conv_hex(int a){
    return "0123456789ABCDEF"[a];
  }
  bool slide(int index, int dir){
    int px = cx[index], py = cy[index];
    int nx = px + dx[dir], ny = py + dy[dir];
    if (invalid(nx, ny)) return false;
    if (b[ny][nx] == '#') return false;
    if (b[ny][nx] == '0') return false;
    swap(b[py][px], b[ny][nx]);
    cx[index] = nx;
    cy[index] = ny;
    return true;
  }
  bool is_ok(){
    static const char cb[5][6] = {
      "##0##",
      "#123#",
      "45678",
      "#9AB#",
      "##0##",
    };
    return memcmp(cb, b, sizeof(cb)) == 0;
  }
  bool invalid(int x, int y){
    return x < 0 || x >= 5 || y < 0 || y >= 5;
  }
  char b[5][6];
  int cx[2], cy[2];
};

int main()
{
  ZobristHash<int, 6, 5, 256> zh;
  int h;
  while (h = in(), h != -1){
    vector<vector<int>> vs(5);
    vs[0].emplace_back(h);
    inpt(vs[1], 3, in);
    inpt(vs[2], 5, in);
    inpt(vs[3], 3, in);
    inpt(vs[4], 1, in);
    Board b(vs);
    queue<Board> Q;
    set<int> vis;
    Q.push(b);
    vis.insert(zh.hash(b.b));

    int turn = 0;
    while (!Q.empty()){
      if (turn > 20) break;
      queue<Board> nQ;
      while (!Q.empty()){
        Board bi = Q.front();
        Q.pop();
        if (bi.is_ok()){
          cout << turn << endl;
          goto END;
        }
        for (int i = 0; i < 2; i++){
          for (int d = 0; d < 4; d++){
            Board bii = bi;
            if (!bii.slide(i, d)) continue;
            int hv = zh.hash(bii.b);
            if (vis.count(hv)) continue;
            vis.insert(hv);
            nQ.push(bii);
          }
        }
      }
      swap(Q, nQ);
      turn++;
    }
    cout << "NA" << endl;
END:;
  }
  return 0;
}