You can use lookups in Ansible in order to get the contents of a file, e.g.
user_data: "{{ lookup('file', user_data_file) }}"
Caveat: This lookup will work with local files, not remote files.
Here’s a complete example from the docs:
- hosts: all
vars:
contents: "{{ lookup('file', '/etc/foo.txt') }}"
tasks:
- debug: msg="the value of foo.txt is {{ contents }}"