gc_goopts seems buggy or has unexpected behavior

### What version of rules_go are you using?

0.42

### What version of gazelle are you using?

0.33

### What version of Bazel are you using?

6.2.1

### Does this issue reproduce with the latest releases of all the above?

I haven't checked, but presumably yes.

### What operating system and processor architecture are you using?

macOS arm64

### Any other potentially useful information about your toolchain?

None

### What did you do?

Try to run `bazel build ... "--@io_bazel_rules_go//go/config:gc_goopts=all=-N -l"`

### What did you expect to see?

Successful build with `-N` and `-l` set for `-gcflags`

### What did you see instead?

A bunch of errors that look like this:

```
# log/slog/internal
open all=-N -l: no such file or directory
# reflect/internal/example2
open all=-N -l: no such file or directory
# runtime/race
open all=-N -l: no such file or directory
# maps
open all=-N -l: no such file or directory
```

I also tried with a few variations on the quoting (`--@io_bazel_rules_go//go/config:gc_goopts="all=-N -l"`, `--@io_bazel_rules_go//go/config:gc_goopts='"all=-N -l"'`), and none of them seem to work.

It seems like these arguments aren't getting propagated down to `-gcflags` correctly and are instead getting interpreted by the compiler as filenames. I can't speak to why that happens.

If you're passing only a single argument to `gc_goopts` (like `--@io_bazel_rules_go//go/config:gc_goopts=-S`), it seems to work fine.

(I understand that `--@io_bazel_rules_go//go/config:debug` is an appropriate workaround for `-N -l` specifically, however, it seems like the basic approach using `gc_goopts` should still work either way.)

Start by reproducing the Bazel command using the gc_goopts entry point and compare how a single option such as -S reaches -gcflags with the multi-option value all=-N -l. Trace the argument propagation and verify completion when both compiler options are passed correctly and the build succeeds.

Written by the indexing model from the issue text.