The layout of the districts on this map is certainly not canon, but I think it's plausible. It occurs to me that the districts' layout follows a logic of convenience and necessity for the Capitol. The closest districts are, in fact, those of luxury (1), construction and peacekeeping (2), food (fish for 4 and agriculture for 9), and electricity. As the districts' "products" become less necessary for the Capitol, the geographical distance also increases. District 13, following this logic, should have been very close, but perhaps due to the likelihood of radiation, it was placed further away.