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paying NI while unemployed

Hi

My GF took redundancy in July last year and was receiving JSA (contribution based) for the last 6 months while looking for work, unfortunately she has not found anything yet.
JSA has now stopped and the job center said she is not entitled to anything as she will be means tested and has too much savings which is fair enough.
She was told she can continue to sign on for NI which is a pain as we dont live that close to the JC.
Someone told her she can pay voluntary contributions.
This is where we are confused. Seems if you're self employed and earning under £5,595 it's only £2.65 a week where as if you're unemployed it's £13.25 a week which seems a bit unfair ! It costs her over a fiver to get to and from the JC so class B would obviously be better for her.
So what stops her becoming self employed but earning nothing, is this allowed or breaking some rules. Don't want to do anything that will get her in trouble but seems a bit silly that an unemployed person has to pay more than a self employed person who earns a few grand a year.

Any help understanding this would be appreciated.

thanks

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