Will "devolution" work?

I am a supporter of devolution and the power of people to have a say in how their taxes are spent. However, I am not convinced that the Greater Manchester model of devolution will make anyone in Bolton more empowered. It makes perfect sense to work in a collaborative manner on issues such as transport but surely this could be done without the need for another tier of government. Bolton is a town of 276,000 people; this is a significant number to govern ourselves. Real devolution would give local authorities greater tax raising powers and real accountability would be the election of councillors on an annual basis and not every four years as is the case in Bolton. Whilst the principle of devolution is laudable my fear is the detail and practice will see no real benefits for the people of Bolton the overwhelming number of whom want an identity with Lancashire and not Greater Manchester. However I do look forward to be able to cast my vote against an elected mayor.