It was the County that was being sued, not the State. And that article if full of a lot of "IFs." Whoever wrote that doesn't have any idea what Manitowoc's insurance policy looks like.
There's also something you may not realize. Whenever there's a lawsuit settlement, the defendants always insert language like "The defendants do not admit any wrong doing." You will not find a settlement without that sort of language. And that language is key. One of the reasons language like that is in settlements is because of something just like this - insurance. You can bet this settlement had all the language to protect the County. That would include language that would not trigger an exclusion in their insurance policy. And of course Avery's side would sign off on it. They couldn't care less where the money comes from. It means nothing to them.
And we know that's what happened. Because once they settled, Manitowoc County's insurance company did in fact pay the settlement.