A little bit of both, probably. Shapiro can likely do what he wants within the parameters that Rogers gives him, but the company itself wants to make money, so anything that negatively impacts the bottom line might need to be green lighted first. Like if Shapiro wanted to trade Sanchez for something, then ownership won't care. But if he wanted to trade Sanchez, Stroman, Osuna, etc, and completely wipe out the roster to rebuild, then he would need some type of thumbs up from ownership since that's likely to impact the bottom line short-term.
But yeah, I think Rogers prefers a team that can sell hope every year, even if it leads no where. I was hoping Shapiro could change that, but maybe he can't.