NODE_OPTIONS do not work properly anymore

Seems like #22392 broke NODE_OPTIONS parsing.

Example:

> NODE_OPTIONS='-r logger.js --trace-events-enabled --trace-event-categories node.async_hooks' ./node

./node: --trace-events-enabled --trace-even is not allowed in NODE_OPTIONS

> NODE_OPTIONS='--trace-events-enabled --trace-event-categories node.async_hooks' ./node

./node: --trace-event-categories node.async_hooks is not allowed in NODE_OPTIONS

cc @addaleax