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>

using namespace std;

#define FOR(i,a,b) for(int i=(a);i<(b);i++)
#define REP(i,n) FOR(i,0,n)
#define ALL(v) (v).begin(),(v).end()
#define fi first
#define se second

template<typename A, typename B> inline bool chmax(A &a, B b) { if (a<b) { a=b; return 1; } return 0; }
template<typename A, typename B> inline bool chmin(A &a, B b) { if (a>b) { a=b; return 1; } return 0; }

typedef long long ll;
typedef pair<int, int> pii;
typedef pair<ll, ll> pll;
typedef pair<int, pll> pip;
const ll INF = 1ll<<29;
const ll MOD = 1000000007;
const double EPS  = 1e-9;

int dd[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}
};

int main() {
	queue<string> que;
	map<string, int> d;
	
	que.push("abcdefghijkla");
	d["abcdefghijkla"] = 0;
	
	while (!que.empty()) {
		string now = que.front(); que.pop();
		int cost = d[now];
		
		if (cost > 10) break;
		
		REP(i, 13) if (now[i] == 'a') {
			REP(j, 4) {
				if (dd[i][j] == -1) break;
				
				swap(now[i], now[dd[i][j]]);
				if (d.find(now) == d.end()) {
					d[now] = cost + 1;
					que.push(now);
				}
				swap(now[i], now[dd[i][j]]);
			}
		}
	}
	while (!que.empty()) que.pop();
	
	int p[13];
	while (cin >> p[0], ~p[0]) {
		FOR(i, 1, 13) cin >> p[i];
		string st = "";
		REP(i, 13) st += p[i] + 'a';
		
		map<string, int> d2;
		que.push(st);
		d2[st] = 0;
		
		int ans = INF;
		
		while (!que.empty()) {
			string now = que.front(); que.pop();
			int cost = d2[now];
			
			if (cost > 10) break;
			if (d.find(now) != d.end()) chmin(ans, d[now] + d2[now]);
			
			REP(i, 13) if (now[i] == 'a') {
				REP(j, 4) {
					if (dd[i][j] == -1) break;
					
					swap(now[i], now[dd[i][j]]);
					if (d2.find(now) == d2.end()) {
						d2[now] = cost + 1;
						que.push(now);
					}
					swap(now[i], now[dd[i][j]]);
				}
			}
		}
		while (!que.empty()) que.pop();
		
		if (ans <= 20) cout << ans << endl;
		else puts("NA");
	}
	return 0;
}