Same problem on Mitaka 9.1. Dell R630 has integrated 2x10Gbit + 2x1Gbit and additional 2x10Gbit card.

PCIe Slot 3 Intel(R) 10GbE 2P X520 Adapter  8x or x8  
Embedded  82599ES 10-Gigabit SFI/SFP+ Network Connection  N/A 
Embedded  82599ES 10-Gigabit SFI/SFP+ Network Connection  N/A 
Embedded  Intel(R) x520 DP 1Gb BT + DP 10Gb SFP+ Rack NDC N/A 
Embedded  Intel(R) x520 DP 1Gb BT + DP 10Gb SFP+ Rack NDC

Only the first interface (eno1) is getting link with bootstrap image, for the others ethtool shows "Link detected: no". 

However dmesg shows that each port have had a link on boot (but disabled at later stage perhaps?):

root@node-1:~# dmesg | grep 'ixgbe'
[    4.857336] ixgbe 0000:01:00.1: Intel(R) 10 Gigabit Network Connection
[   10.476729] ixgbe 0000:01:00.0: registered PHC device on eno1
[   10.642335] ixgbe 0000:01:00.0 eno1: detected SFP+: 4
[   10.781958] ixgbe 0000:01:00.0 eno1: NIC Link is Up 10 Gbps, Flow Control: RX/TX
[149314.079278] ixgbe 0000:01:00.1: registered PHC device on eno2
[149314.246412] ixgbe 0000:01:00.1 eno2: detected SFP+: 3
[149314.386132] ixgbe 0000:01:00.1 eno2: NIC Link is Up 10 Gbps, Flow Control: RX/TX
[149315.398571] ixgbe 0000:04:00.0: registered PHC device on enp4s0f0
[149315.565169] ixgbe 0000:04:00.0 enp4s0f0: detected SFP+: 3
[149315.704829] ixgbe 0000:04:00.0 enp4s0f0: NIC Link is Up 10 Gbps, Flow Control: RX/TX
[149316.721207] ixgbe 0000:04:00.1: registered PHC device on enp4s0f1
[149316.887883] ixgbe 0000:04:00.1 enp4s0f1: detected SFP+: 4
[149317.127423] ixgbe 0000:04:00.1 enp4s0f1: NIC Link is Up 10 Gbps, Flow Control: RX/TX
[149324.186380] ixgbe 0000:01:00.1: removed PHC on eno2
[149324.270194] ixgbe 0000:04:00.0: removed PHC on enp4s0f0
[149324.353860] ixgbe 0000:04:00.1: removed PHC on enp4s0f1
[150061.264521] ixgbe 0000:01:00.1: registered PHC device on eno2
[150061.431909] ixgbe 0000:01:00.1 eno2: detected SFP+: 3
[150061.571630] ixgbe 0000:01:00.1 eno2: NIC Link is Up 10 Gbps, Flow Control: RX/TX
[150062.582976] ixgbe 0000:04:00.0: registered PHC device on enp4s0f0
[150062.750655] ixgbe 0000:04:00.0 enp4s0f0: detected SFP+: 3
[150062.890328] ixgbe 0000:04:00.0 enp4s0f0: NIC Link is Up 10 Gbps, Flow Control: RX/TX
[150063.902359] ixgbe 0000:04:00.1: registered PHC device on enp4s0f1
[150064.069384] ixgbe 0000:04:00.1 enp4s0f1: detected SFP+: 4
[150064.209024] ixgbe 0000:04:00.1 enp4s0f1: NIC Link is Up 10 Gbps, Flow Control: RX/TX
[150071.383888] ixgbe 0000:01:00.1: removed PHC on eno2
[150071.468088] ixgbe 0000:04:00.0: removed PHC on enp4s0f0
[150071.551778] ixgbe 0000:04:00.1: removed PHC on enp4s0f1

Settings for eno2:
	Supported ports: [ FIBRE ]
	Supported link modes:   10000baseT/Full
	Supported pause frame use: No
	Supports auto-negotiation: No
	Advertised link modes:  10000baseT/Full
	Advertised pause frame use: No
	Advertised auto-negotiation: No
	Speed: 10000Mb/s
	Duplex: Full
	Port: Direct Attach Copper
	PHYAD: 0
	Transceiver: external
	Auto-negotiation: off
	Supports Wake-on: umbg
	Wake-on: g
	Current message level: 0x00000007 (7)
			       drv probe link
	Link detected: no

Now when I add interface profile under /etc/network/interfaces.d - like:
--- EXAMPLE ---
root@bootstrap:~# cat /etc/network/interfaces.d/ifcfg-eno2
auto eno2
iface eno2 inet static
    address 192.30.10.11/24
--- EXAMPLE ---

... and do 'ifup eno2', then interface will be up!

root@bootstrap:~# ethtool eno2
Settings for eno2:
	Supported ports: [ FIBRE ]
	Supported link modes:   10000baseT/Full
	Supported pause frame use: No
	Supports auto-negotiation: No
	Advertised link modes:  10000baseT/Full
	Advertised pause frame use: No
	Advertised auto-negotiation: No
	Speed: 10000Mb/s
	Duplex: Full
	Port: Direct Attach Copper
	PHYAD: 0
	Transceiver: external
	Auto-negotiation: off
	Supports Wake-on: umbg
	Wake-on: g
	Current message level: 0x00000007 (7)
			       drv probe link
	Link detected: yes

Why isnt fuel bootstrap image bringing these interfaces up correctly?