Hi, Joe. Well, it just so happens that I've 'been there, done that" myself, so my opinion may be of some use.
When we built Badger, we also made a ferro cement keel, and we had a lot of punchings left over, so I certainly suspected that it was underweight. The keel was glued on with thickened epoxy, the holes in the floors drilled oversize for the keelbolts, as per the Gougeon Bros advice. When we came to remove it, there wasn't the slightest sign of cracking - and we had dragged and pounded on a rocky shore on one occasion, so the method worked very well. It was a hell of a job to get it off! We were so impressed with the method that the steel keel was put on in the same fashion.
In my opinion, you have done dead right to persevere and put in lead to achieve the ballast as planned. We replaced our ferro keel with one of cast iron, that weighed 1,800 kg (3,968 lb), if my memory serves me correctly. I know it was certainly within coo-ee of the specified ballast. I shouldn't agonise too much about the weight of the keel if I were you. It's not an exact science and there are several Badgers sailing around all of whom, I suspect, have differing amounts of ballast. If you are within a hundred pounds or so, I'm sure you'll be OK.
It sounds as though you are building the boat single-handed? All I can say is that you have my immense respect for not only taking on such a project, but continuing to flog on with it for so many years. It can't have been easy. Welcome to the JRA, by the way. I'm sure you'll find solid information, encouragement and friendship here.