The given sentence is in passive voice, where the subject 'who' receives the action 'had been fined' in the interrogative.
While changing to active voice, the subject 'who' is changed to object 'whom'. ('Whom' is an object pronoun, the equivalent to 'who', a subject pronoun.) In the passive voice, the object 'them' is only implied: Who had been fined by them?
While changing to active, 'they' is introduced ('they' is the subject equivalent to 'them').
The active form of 'had been fined' is 'had + subject 'they' + fined'.