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You find them in new york if you complete their "puzzle", then you can buy them through the character select screen on the blue terminals scattered around new york using studs. The same goes for vehicles.
Hold down U (or other character select button if on gamepad/other) when in freeplay mode.
If that doesnt work(because you are given certain charcters and are meant to go to a certain play in the freeplay world for something to happen), then go to a shield vehicle place and change either of your characters to any other characters. Once this is done, from that point on you can hold down U to pull up the character menu and purchase characters.
If there is a questionmark then you have to find and unlock the character still. I'm down to only 3 left to unlock! :D
Yes, they may seem costly, but once you get a x3 multiplyer things get considerably easier (my advice, skip the x2, go straight for the x3, then the x2, then any others, but by then you'd be raking it in - also buy Collect Ghost Studs... they seem to be worth 1,000 each!)