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Yes you are right. Building bakeries on piers is probably a good idea. My only issue with this idea with respect to maximum population is that it requires a forester to be on the map to produce charcoal. I don't really know if OP wanted maximum stable population or to store up food and go for a population boom, which will lead to mass starvation.
I did do a save and did that to get to 5k for the achievement but currently it will be not something you can get without a bit of abuse like that and maintain a healthy city.
Here is my main 4k healthy city and I am sure I could fit more in it and maintain it on it's own but each of my houses are at max short of them being near water for that bonus since I filled it all in for piers to be able to build on.
http://steamcommunity.com/sharedfiles/filedetails/?id=1219564962
If you have done that and still don't have enough space your map seed may had been limited so try finding a better one in the link here : http://steamcommunity.com/app/569480/discussions/0/2765630416826440295/
Otherwise you will need to squeeze things together and compact it if you can to make more space such as you can see in my screenshot where my foresters only need 1 tree to function really so you can limit their space used.
My current population cap is just over 6K, but my population is usually about 5.8K. (Festivals will quickly max it out, but then it drops. At 5.8K it is only shirnking very slowly.) There is some but not much starvation normally, although I lose a lot of people in rainy years. And I don't have enough hospitals, since plagues kill over half the people who get sick.
I've seen a screen shot of someone's kingdom where the population was a little over 7K.
FYI on foresters - their productivity really takes a hit if they don't have three trees.