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 <algorithm>
#include <cctype>
#include <climits>
#include <cmath>
#include <cstdio>
#include <cstdlib>
#include <cstring>
#include <functional>
#include <map>
#include <numeric>
#include <queue>
#include <set>
#include <sstream>
#include <string>
#include <vector>

using namespace std;

#define reps(i,f,n) for(int i=f; i<int(n); ++i)
#define rep(i,n) reps(i,0,n)

typedef long long ll;
typedef vector<int> vi;
typedef vector<vi> vvi;
typedef pair<int, int> pii;

const int INF = 1001001001;
const ll SAMPLE = 0x0ba9876543210ll;

int bfs(ll init)
{
	if(init == SAMPLE)
		return 0;
	
	const int move[13][5] = {
		{2, -1},
		{2, 5, -1},
		{0, 1, 3, 6, -1},
		{2, 7, -1},
		{5, -1},
		{1, 4, 6, 9, -1},
		{2, 5, 7, 10, -1},
		{3, 6, 8, 11, -1},
		{7, -1},
		{5, 10, -1},
		{6, 9, 11, 12, -1},
		{7, 10, -1},
		{10, -1}
	};
	
	set<ll> visited;
	queue<pair<ll, int> > Q;
	Q.push(make_pair(init, 0));
	visited.insert(init);
	while(!Q.empty()){
		pair<ll, int> data = Q.front();
		Q.pop();

		for(int i=0, cnt=2; cnt; ++i){
			if(((data.first>>(i*4)) & 0xfll) == 0){
				for(int j=0; move[i][j]!=-1; ++j){
					ll next = data.first;
					next &= ~((0xfll << (i*4)) | (0xfll << (move[i][j]*4)));
					next |= ((data.first >> (move[i][j]*4)) & 0xfll) << (i*4);
					if(next == SAMPLE)
						return data.second + 1;

					if(visited.find(next) == visited.end()){
						visited.insert(next);
						if(data.second < 19)
							Q.push(make_pair(next, data.second+1));
					}
				}
				--cnt;
			}
		}
	}
	return -1;
}

int main()
{
	for(;;){
		int input[13];
		rep(i, 13){
			scanf("%d", &input[i]);
			if(input[i] == -1)
				return 0;
		}

		ll init = 0;
		rep(i, 13)
			init = (init << 4) | input[12-i];

		int ans = bfs(init);
		if(ans == -1)
			puts("NA");
		else
			printf("%d\n", ans);
	}
}