maximally pack them in transit
Bits will only stay in transit for max 25ms, because that's the propagation delay.
In $1$ second —> $10^6$ bits are passed through the link at max.
In $25 ms$ —> $25m * 10^6$ bits are passed through the link at max.
=> In $ 25 ms$ —> $25 * 10^3$ bits are passed through the link at max.
=> In $25ms$ —> $25 packets$ are passed through the link at max..
To uniquely identify 25 packets., we need 5 bits.
Option D