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 <iostream>
#include <vector>
#include <algorithm>
#include <queue>
#include <set>

using namespace std;

int d[5][5];
const int INF=100000000;

int minDepth=INF;

const int dx[]={-1,0,0,1};
const int dy[]={0,1,-1,0};


// ツ閉敖優ツ静ヲツづ探ツ催オ
int bfs(){
	set<vector<vector<int> > > used;

	queue<vector<vector<int> > > *prv = new queue<vector<vector<int> > >();
	queue<vector<vector<int> > > *nxt = new queue<vector<vector<int> > >();
	vector<vector<int> > v;
	for(int i = 0; i < 5; i++){
		vector<int> vv;
		for(int j = 0; j < 5; j++){
			vv.push_back(d[i][j]);
		}
		v.push_back(vv);
	}
	used.insert(v);

	prv->push(v);
	int cnt=0;
	while(prv->size()){
		if(cnt==21)
			break;
		cout<<cnt<<endl;
		while(prv->size()){
			vector<vector<int> > cv = prv->front();
			prv->pop();
			if(cv[1][1]==1&&cv[1][2]==2&&cv[1][3]==3&&cv[2][0]==4&&cv[2][1]==5&&cv[2][2]==6&&cv[2][3]==7
				&&cv[2][4]==8&&cv[3][1]==9&&cv[3][2]==10&&cv[3][3]==11){
					return cnt;
			}
			// ツゼツδ債づ個暗環置ツづーツ探ツ催オ
			vector<pair<int,int> > zeroP;
			for(int i = 0; i < 5; i++){
				for(int j = 0; j < 5; j++){
					if(cv[i][j]==0)
						zeroP.push_back(make_pair(i,j));
				}
			}
			// ツ督ョツつゥツつケツづゥツ督ョツつゥツつオツ陛サツづーツつキツづ猟づ篠篠つキ
			for(int i = 0; i < zeroP.size(); i++){
				int cx=zeroP[i].second;
				int cy=zeroP[i].first;
				// ツ四ツ陛サツ古シツつキツづ猟づ篠篠つキ
				for(int j = 0; j < 4; j++){
					int nx=cx+dx[j];
					int ny=cy+dy[j];
					if(nx>=0&&ny>=0&&nx<5&&ny<5){
						if(ny==0&&nx==2){
							if(cv[ny][nx]!=INF&&cv[ny][nx]!=0){
								swap(cv[ny][nx],cv[cy][cx]);
								if(used.find(cv)==used.end()){
									nxt->push(cv);
									used.insert(cv);
								}
								swap(cv[ny][nx],cv[cy][cx]);
							}
						}
						else if(ny==1&&nx>=1&&nx<=3){
							if(cv[ny][nx]!=INF&&cv[ny][nx]!=0){
								swap(cv[ny][nx],cv[cy][cx]);
								if(used.find(cv)==used.end()){
									nxt->push(cv);
									used.insert(cv);
								}
								swap(cv[ny][nx],cv[cy][cx]);
							}
						}
						else if(ny==2&&nx>=0&&nx<=4){
							if(cv[ny][nx]!=INF&&cv[ny][nx]!=0){
								swap(cv[ny][nx],cv[cy][cx]);
								if(used.find(cv)==used.end()){
									nxt->push(cv);
									used.insert(cv);
								}
								swap(cv[ny][nx],cv[cy][cx]);
							}
						}
						else if(ny==3&&nx>=1&&nx<=3){
							if(cv[ny][nx]!=INF&&cv[ny][nx]!=0){
								swap(cv[ny][nx],cv[cy][cx]);
								if(used.find(cv)==used.end()){
									nxt->push(cv);
									used.insert(cv);
								}
								swap(cv[ny][nx],cv[cy][cx]);
							}
						}
						else if(ny==4&&nx==2){
							if(cv[ny][nx]!=INF&&cv[ny][nx]!=0){
								swap(cv[ny][nx],cv[cy][cx]);
								if(used.find(cv)==used.end()){
									nxt->push(cv);
									used.insert(cv);
								}
								swap(cv[ny][nx],cv[cy][cx]);
							}
						}
					}
				}
			}
		}
		swap(prv,nxt);
		cnt++;
	}
	return INF;
}

// ツ深ツつウツ優ツ静ヲツづ探ツ催オ
void dfs(vector<pair<int,int> > zeroP,int depth){
	if(minDepth<depth)
		return;
	if(d[1][1]==1&&d[1][2]==2&&d[1][3]==3&&d[2][0]==4&&d[2][1]==5&&d[2][2]==6&&d[2][3]==7
		&&d[2][4]==8&&d[3][1]==9&&d[3][2]==10&&d[3][3]==11){
			minDepth=min(minDepth,depth);
			return;
	}
	else if(depth==20)
		return;

	// ツ督ョツつゥツつケツづゥツ督ョツつゥツつオツ陛サツづーツつキツづ猟づ篠篠つキ
	for(int i = 0; i < zeroP.size(); i++){
		int cx=zeroP[i].second;
		int cy=zeroP[i].first;
		// ツ四ツ陛サツ古シツつキツづ猟づ篠篠つキ
		for(int j = 0; j < 4; j++){
			int nx=cx+dx[i];
			int ny=cy+dy[i];
			if(nx>=0&&ny>=0&&nx<5&&ny<5){
				if(ny==0&&nx==2){
					if(d[ny][nx]!=INF&&d[ny][nx]!=0){
						swap(d[ny][nx],d[cy][cx]);
						vector<pair<int,int> > nzp;
						if(i==0){
							nzp.push_back(zeroP[1]);
						}
						else{
							nzp.push_back(zeroP[0]);
						}
						nzp.push_back(make_pair(ny,nx));
						dfs(nzp,depth+1);
						swap(d[ny][nx],d[cy][cx]);
					}
				}
				else if(ny==1&&nx>=1&&nx<=3){
					if(d[ny][nx]!=INF&&d[ny][nx]!=0){
						swap(d[ny][nx],d[cy][cx]);
						vector<pair<int,int> > nzp;
						if(i==0){
							nzp.push_back(zeroP[1]);
						}
						else{
							nzp.push_back(zeroP[1]);
						}
						nzp.push_back(make_pair(ny,nx));
						dfs(nzp,depth+1);
						swap(d[ny][nx],d[cy][cx]);
					}

				}
				else if(ny==2&&nx>=0&&nx<=4){
					if(d[ny][nx]!=INF&&d[ny][nx]!=0){
						swap(d[ny][nx],d[cy][cx]);
						vector<pair<int,int> > nzp;
						if(i==0){
							nzp.push_back(zeroP[1]);
						}
						else{
							nzp.push_back(zeroP[1]);
						nzp.push_back(make_pair(ny,nx));
						dfs(nzp,depth+1);
						swap(d[ny][nx],d[cy][cx]);
						}
					}

				}
				else if(ny==3&&nx>=1&&nx<=3){
					if(d[ny][nx]!=INF&&d[ny][nx]!=0){
						swap(d[ny][nx],d[cy][cx]);
						vector<pair<int,int> > nzp;
						if(i==0){
							nzp.push_back(zeroP[1]);
						}
						else{
							nzp.push_back(zeroP[1]);
						}
						nzp.push_back(make_pair(ny,nx));
						dfs(nzp,depth+1);
						swap(d[ny][nx],d[cy][cx]);
					}

				}
				else if(ny==4&&nx==2){
					if(d[ny][nx]!=INF&&d[ny][nx]!=0){
						swap(d[ny][nx],d[cy][cx]);
						vector<pair<int,int> > nzp;
						if(i==0){
							nzp.push_back(zeroP[1]);
						}
						else{
							nzp.push_back(zeroP[1]);
						}
						nzp.push_back(make_pair(ny,nx));
						dfs(nzp,depth+1);
						swap(d[ny][nx],d[cy][cx]);
					}
				}
			}
		}
	}
}


int main(){

	for(int i = 0; i < 5; i++){
		for(int j = 0; j < 5; j++){
			d[i][j]=INF;
		}
	}
	while(cin>>d[0][2]&&d[0][2]!=-1){
		minDepth=INF;
		cin>>d[1][1]>>d[1][2]>>d[1][3];
		for(int i = 0; i < 5; i++){
			cin>>d[2][i];
		}
		cin>>d[3][1]>>d[3][2]>>d[3][3]>>d[4][2];
		
		vector<pair<int,int> > emp;
		for(int i = 0; i < 5; i++){
			for(int j = 0; j < 5; j++){
				if(d[i][j]==0)
					emp.push_back(make_pair(i,j));
			}
		}

		//dfs(emp,1);
		minDepth=bfs();

		if(minDepth==INF)
			cout<<"NA"<<endl;
		else
			cout<<minDepth<<endl;

		// ツ篠淞づ個渉按猟敖づ個つスツづ淞づ個渉可甘コツ可サ
		for(int i = 0; i < 5; i++){
			for(int j = 0; j < 5; j++){
				d[i][j]=INF;
			}
		}
	}



	return 0;
}