You could try this program . . . . >> PhotoFiltre << . . . . to create your passport photos.

Once installed, open your chosen photograph to be used as your passport photo. You can either use your mouse cursor to roughly 'draw' a rectangle around the head & shoulders bigger than the final photo and go to the MenuBar > Edit > Copy. Check the criteria shown in greysts link , or just copy the full photo by going to the MenuBar > Edit > Copy

Minimize the original photo then go to the MenuBar > File > New
Change the new size dimensions to 3.5 (width) & 4.5 (height) in cm.

Resolution must be 300 (or bigger) Pixels/inch. OK

Return to the MenuBar > Edit > Paste.

Your 'drawn' selection or complete original photo is now pasted into the passport size image. You'll notice 'flashing' dotted lines on the top and left hand side of the image which is the edge of your pasted photo.

Press your Shift key while pulling the top left corner diagonal arrows down over just stopping before your image disappears off the screen. This constrains the proportions.
Release the Shift key and hold down the Left click on the showing image and drag to the top left.
Repeat the above process till you have your pasted image as you want it.

Save the passport size image as a JPEG via the File > Save As Type.

Before minimizing the passport size image again return to the MenuBar > Edit > Copy.

Back to the MenuBar > File > New > New Size > 21 (width) 29.7 (height) in cm. This equates to an A4 sheet. Resolution 300 or higher. Pixels/inch. Or Preset size > A4. OK

Now paste your final passport image via MenuBar > Edit > Paste into the A4 size sheet and drag to one side with your mouse cursor, then repeat as many times as you like to get the required amount of passport images.

The critical part is the printing. A Photographic printer is preferred and of course a high quality paper is essential along with the changed settings within the printer preferences to suit the paper you're using.

There a many free programs available to do the above in a similar manner. I have chosen Photofiltre as an example and not as a preference over any other.

I have printed many, many passport photographs for friends, family and colleagues etc without any come backs using image editing programs. It is down to the individual to decide if the offered passport image is acceptable as I said earlier using greysts link as an official guide regarding the head position etc. Trial and error should also be used so wastage is also a factor.