How to deploy a cluster?

I have read the related posted question about cluster deploying and the official documents carefully.
But when I follow the step and try to build a cluster, there still are a lot of problems.

I started two default fdb service on two servers.
I run script to update one servers cluster file.
I restarted the fdb and connect fdbcli to this server. All looks fine.

I then copy the cluster file on the first server to the other one. I restarted the second fdb.
If seems the cluster has knowledge there are two machines now. But the database is unavailable… What should I do?