You have to send 1 value $x$, but that $x$ can be one of 13 values that you know. It doesn't matter what the values are, since you can just say that you're sending 1st one from those 13 values, or 7th one from those 13 values.
So, you're not sending the value itself, but the index of that value. The index $i$ can be between anything between $c \leq i \leq c + 12$. Then, in order to send that index, you will need to send $k$ bytes, where $k = \lceil \log_2 (c+12)\rceil$. Since we would like to send the minimum number of bits possible, we would use $c=0$ (that is, start indexing from 0).
We thus need 4 bits.