When you run Nlbmgr.exe it does NOT create the cluster. The Setupapi.log file may contains:
Error 0xe0000228: There are no compatible drivers for this device.
This behavior will occur if you use the 32-bit version of Nlbmgr.exe on a 64-bit server.
To workaround this problem, use the 64-bit version of Nlbmgr.exe on a 64-bit server.