With the German invasion of the Soviet Union in 1941, Kulakov was involved in planning the defence of the Black Sea Fleet's ports, and in organising counterattacks by Soviet Naval Aviation and units of the Danube Flotilla. He oversaw the activities of the political bodies and party organizations of the Black Sea Fleet during this time. With the German advance to the Black Sea, Kulakov helped to organise the preparation of defences for Odessa, and when that city fell, those of Sevastopol. The German campaign through the Crimea forced the Soviet forces back and in 1942 Sevastopol also fell. Kulakov helped in the evacuation, and flew out of the city on the last military aircraft. On 13 December 1942 divisional commissioners like Kulakov were ranked as rear admirals, and he was sent to Gelendzhik to assist in preparing counterattacks.