是多模块吗?
web.xml里面配置
    <init-param>
        <param-name>config</param-name>
        <param-value>/WEB-INF/conf/struts-default.xml</param-value>
    </init-param>
    <init-param>
        <param-name>config/module1</param-name>
        <param-value>/WEB-INF/conf/struts-module1.xml</param-value>
    </init-param>
    ...