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Does the MOTD menu in xgui say the file name is motd.txt?
ULX has several motd modes, 0 = none, 1 = use the ulx_motdfile cvar (NOT motdfile as you state in your server.cfg, but ulx_motdfile) , 2 = (OUR DEFAULT) use motdfile generator, 3= use URL.
Make sure you have the correct mode too.