i too faced the same situation a couple of weeks ago & after reading many articles(mostly using photoshop which i don't like)i finally figured a simple,easy & free way to do it.
first create a folder & paste the target image 16 times into that folder so that there are 16 images(identical or not depends on your choice but identical for self-photos to be pasted on forms just like those shopkeepers do for multiple copies of your photo).
install irfanview(excellent free image editor with just 8mb size).click on file---thumbnails,a new window will open.select your folder from the left hand side selection tree.right hand side will now show the 16 images in the folder.using right-click select all the 16 images & select the "create contact sheet from the selected files" option.in the new window that opens select standard dimension A4 & image parameter as row 4 & column 4.click on create & irfanview will create a single jpg file of A4 size containing 16 images(4*4) which you can print(try ordinary paper first,it took me 2 attempts to perfect the process but since nobody posted step-by-step instructions for me you should be able to understand in 1 attempt).once perfected yo can print on photo-paper.