In the /opt/vmware/vcloud-director/logs/vcloud-container-debug.log you can see
Timed out waiting for service: 'userDao'
This issue occurs when the UserLegacyDao is too slow to instantiate during startup. As a result the startup process becomes stuck in a constant loop.
The issue is resolved in VMware Cloud Director 10.4.1 available at Download Broadcom products and software.
Workaround:
The only available workaround is to redeploy the affected cell.
Please refer to the following documentation:
Recover from a Standby Cell Failure in a High Availability Cluster