This is one that is not very common in ordinary usage, but which seems to recur like a bad rash in bureaucratese and militarese.
Apparently some technical writers have an aversion to the more usual (and more correct) "including".
Granted, "to include" can be right in certain contexts -- specifically, when describing a future/potential situation, as in some kind of specification. E.g.:
The vessel shall be capable of containing, with zero leakage, a variety of solvents, to include water, ethanol, and benzene.
Problem is, some people conclude that it therefore makes sense in every context. Consider:
Medieval lords employed cruel tactics to keep serfs in subjugation, to include torture, whimsical justice, and extreme taxation.