I had the same problem, then I just unlocked it a few days back. Just keep playing Arcade mode (or 1p mode, I dunno) and keep getting the cards, you should notice the highlights in the character select will change color when you press left or right after you unlocked it
this is easily the best kamen rider game on Ps1. and to think that this is an early kamen rider game in the ps1 is kinda sad, because the latest installment in the same console goes lower in quality which each release..... just look at how ugly and bad Kamen Rider Ryuuki game is 🙃