Are they both on the same layer? Is there Text Wrap set for the image?
It sounds to me like the photo is applying text wrap. If the text wrap is actually needed in order to wrap other text in the document, then you can select the text frame that you want to appear on top of the photo and choose Object > Text Frame Options and enable the "Ignore Text Wrap" checkbox in the lower-left corner.
thank you Scot McIntosh