I don't know the correct way but it happened to me this is how i fixed it.
Close every hotbar but one make sure its labeled 1 and hotkey 1. Right Click and Open new hotbar from hotbar 1.
Do it again for another hotbar but this time right click hotbar 2 and so on with 3,4 however many you want. After all is set and done save it type this
Code:
/save_uisettings SERVERNAME_CHARECTERNAME_eq2_uisettings.xml
Where is say servername add your server and same for charactername
*Make sure you capitalize what needs to be capitalized*