how to play
You have been appointed to manage a city redevelopment plan for Sexton.
In principle, the instructions are simple enough: direct the city's contractors to build the six new developments (an apartment building, a port, a park, a library, a post office, and a train station) in the positions indicated by the city's plan. Unfortunately, the contractors have an... unusual way of following your instructions. Due to a failure of communication, they've broken grounds for the projects in apparently random locations. To compound difficulties, when you send an order to swap two of the build sites, they will instead shift around all six of them!
The city administration, however, assures you that there is method in the contractors' madness. It is possible to redirect the contractors to set up at the right spots (or, indeed, any arrangement of spots) simply through ordering swaps-of-two. They tell you that the baffling way of interpreting your orders is, while peculiar, perfectly rational and legitimate. Something to do with there being six sites exactly...
In plain language: You need to line the tiles in the middle row up with the matching tiles on the bottom, which are fixed. You can move the middle row around by clicking on two tiles in the top row to swap them. A swap on top will be met with a full rearrangement in the middle. However, the same transposition in the first row will always induce the same unique reordering in the second, any two strings of first row moves with the same end effect on the top also have same effect on the middle, and it is possible by judiciously choosing a sequence of first row transpositions to line the second row in any order desired.
You can accept a 100-turn time limit (started retroactively from your first turn) by clicking the deadline button on the bottom left. A full tally of your moves is kept in the browser console. A general hint is available in another link.
You can toggle the midrow graphics with the Simplify Image button, if you find the middle row pictures unclear. You can also click on the mid and bottom row buttons to identify them.
With a statespace of 720, it's within the bounds of feasibility to brute force the solution for any playthrough, but well outside the bounds of fun. Less tedious and more illuminating strategies are possible.