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O''''day 272 Rudder
I have never heard of a water ballasted rudder. If it were mine, I wouldn''t want the water in it for two reasons. It will eventually creep into the laminated layers and cause them to delaminate the fiberglass and blister the gelcoat. It is also weight you don''t need.
I would drill a couple of small holes in the rudder to empty out the rudder, let it bake in the sun for a few days to get as much moisture out as possible, then fill the void with spray foam, then repaint or re-gelcoat as needed. It will be lighter, stronger, and last longer.