Rovers' owners - Venky's London Limited - announced losses for last year of £27m in a turbulent season where the club went through five managers.
"If we are promoted I think we'll have a substantial fine and, if we're not promoted at this stage, we'll probably have an embargo," Shaw told BBC Radio Lancashire.
"It's a difficult balance because we've got to try to and change a team around that almost got relegated to a team that we want to get promoted."
Blackburn are ninth in the Championship after 11 games of the season. They next host Charlton Athletic on Saturday.