Hi,
By November 1914 the government ---- to acknowledge that its policy ----.
A) is forced / has failed
E) was forced / had failed
I'd say E is the answer expected. However, if the narrative that includes this sentence is being told in the form of a 'story', then A would be acceptable. But E would be much, much more common. I think these test questions always want the 'most common, most likely' answer.
I'd prefer D to say 'had failed' rather than failed.
Best wishes, Clive