Apache Struts 2 Documentation
How do I enable encoding in my forms
If you have enabled all all possible UTF-8 settings, and your application's forms still aren't handling your characterset correctly, it may help to
- add accept-charset as attribute to the form tag, OR
- create a hidden tag with name "charset" that the browser will fill in
For more, see FORM submission and i18n
An enhancement is planned for SAF 2.0 that may solve this problem. The change would be to add a default overridable UTF-8 encoding the form template.