vSAN file service VMs are not re-created in a vSAN Cluster following a complete shutdown of the vSAN cluster.
This is due to an improper shutdown of the vSAN Cluster but can occur after a proper shutdown and restart procedure as well.
VMware vCenter Server 7.0.x
VMware vCenter Server 8.0.x
VMware vCenter Server 9.0.x
When a vSAN Cluster is shut down, the vCLS Agency on the cluster is disabled via an API call to EAM. Ideally, when the cluster comes back online, the vCLS Agency is re-enabled, allowing vSAN VMs to power on or be created as needed. However, if this re-enablement fails, the cluster remains disabled for the vsan file service Agency, preventing vSAN file service VMs from being created. This disabled state is recorded in the VCDB's vpx_ext_data table.
The issue and resolution is the same matching with this KB article below, where the agency is in a disabled state and involves editing the VCDB.
https://knowledge.broadcom.com/external/article/326304/vcls-vms-are-not-recreated-in-a-vsan-clu.html
This issue will also impact VCLS VM's as well as the vSAN file service VMs.
As mentioned in the KB, take a offline snapshot of the vCenter Server in the SSO domain before running through these steps.