The problem is no matter what, I can't seem to bring them up, and the program won't allow them to, even if the other layers are unlocked. Any idea of this is fixable, and has anyone else had this issue?
The order of image and baseboard layers can be controlled similar to changing the order for regular layers.
The app does however ensure that layers with regular layout elements are always drawn on top of image and baseboard layers. When adjusting the order of image and baseboard layers they can be freely positioned within other layers of the same type, they will however always have a position in the layer list lower than any regular layer with layout elements.
You can find more details in the Rendering Order of Layers chapter in the manual!