You can do this by introducing a carbon tax (that you levy on eg petrol as well) and a road congestion charge.
Distribute the proceeds equally amongst all citizens. And in effect, anyone who commutes less than the average person gets a net positive payment. (Or technically: anyone who uses less carbon or causes less congestion than the average person.. Someone who commutes 100km by bicycle would still get a net payment. That's fine.)
But yes, these you are right, there's a danger that landholders (landlords and owner occupiers) capture the gains, even in my proposed scheme.
You deal with that via a land value tax.
From the point of view of economics, those ideas are orthodoxy. Good luck getting them past any political process anywhere in the world, though.
