Option D is the correct answer.

The object of the active sentence becomes the subject of the passive sentence. In the active voice, "the council" is the object. In the passive voice, it becomes the subject.

The verb is changed to its passive form. The active verb "urged" is transformed into the passive form "was urged."

Thus, the sentence "He urged the council to reduce the rates" in passive voice becomes "The council was urged to reduce the rates."