Do the following mean the same?
1. It is to submit that the report is baseless.
2. It is submitted that the report is baseless.
No, they don't have the same meaning. Sentence (2) uses extraposition; it means "That the report is baseless is submitted."
Sentence (1) does not use extraposition. It could be used to answer the question "What is it for?", where "it" refers to something established in the context.
I assume (2) is closer to what you're trying to say. If (2) is itself making the "submission," I recommend adding "hereby." If it isn't, I'd use the present perfect.
(3) It is hereby submitted that the report is baseless.
(4) It has been submitted that the report is baseless.
You might also consider whether you really need the passive voice. Is the active voice ("We/I submit that the report is baseless") forbidden in the context?