The messengers returned to Athens and reported the answer which they had received. The people were puzzled and perplexed in their attempts to understand it. It seems that the citadel of Athens had been formerly surrounded by a wooden palisade. Some thought that this was what was referred to by the "wooden walls," and that the meaning of the oracle was that they must rebuild the palisade, and then retreat to the citadel when the Persians should approach, and defend themselves there.
Others conceived that the phrase referred to ships, and that the oracle meant to direct them to meet their enemies with a fleet upon the sea. Salamis, which was also mentioned by the oracle, was an island not far from Athens, being west of the city, between it and the Isthmus of Corinth. Those who supposed that by the "wooden walls" was denoted the fleet, thought that Salamis might have been alluded to as the place near which the great naval battle was to be fought. This was the interpretation which seemed finally to prevail.
The Athenians had a fleet of about two hundred galleys. These vessels had been purchased and built, some time before this, for the Athenian government, through the influence of a certain public officer of high rank and influence, named Themistocles. It seems that a large sum had accumulated in the public treasury, the produce of certain mines belonging to the city, and a proposal was made to divide it among the citizens, which would have given a small sum to each man. Themistocles opposed this proposition, and urged instead that the government should build and equip a fleet with the money. This plan was finally adopted. The fleet was built, and it was now determined to call it into active service to meet and repel the Persians, though the naval armament of Xerxes was six times as large.
The next measure was to establish a confederation, if possible, of the Grecian states, or at least of all those who were willing to combine, and thus to form an allied army to resist the invader. The smaller states were very generally panic-stricken, and had either already signified their submission to the Persian rule, or were timidly hesitating, in doubt whether it would be safer for them to submit to the overwhelming force which was advancing against them, or to join the Athenians and the Spartans in their almost desperate attempts to resist it. The Athenians and Spartans settled, for the time, their own quarrels, and held a council to take the necessary measures for forming a more extended confederation.