run_shell doesn't pass arguments to scripts

### Description of the bug:

When run_shell is used with a script of big size, Bazel saves the script to a file and runs it. With that, arguments of the action are not passed to the script.

### Which category does this issue belong to?

Core

### What's the simplest, easiest way to reproduce this bug? Please provide a minimal example if possible.

Example with the problem: https://github.com/bazelbuild/examples/pull/685

Running `bazel build shell_command:echo` produces this error:

```
ERROR: .../examples/rules/shell_command/BUILD:22:5: Action shell_command/echo.txt failed: (Exit 1): bash failed: error executing Action command (from target //shell_command:echo) /bin/bash -c bazel-out/darwin_arm64-fastbuild/bin/shell_command/echo.run_shell_0.sh '' arg

Use --sandbox_debug to see verbose messages from the sandbox and retain the sandbox build root for debugging
bazel-out/darwin_arm64-fastbuild/bin/shell_command/echo.run_shell_0.sh: line 2: $1: unbound variable
```

However, if I remove one "a" from this [line](https://github.com/styurin/examples/blob/b8b146226c5f4dcb7d3f30784fafe27d98c88152/rules/shell_command/echo.bzl#L9), the build succeeds.

### Which operating system are you running Bazel on?

MacOS

### What is the output of `bazel info release`?

release 8.1.0

### If `bazel info release` returns `development version` or `(@non-git)`, tell us how you built Bazel.

_No response_

### What's the output of `git remote get-url origin; git rev-parse HEAD` ?

```text

```

### If this is a regression, please try to identify the Bazel commit where the bug was introduced with bazelisk --bisect.

_No response_

### Have you found anything relevant by searching the web?

It looks like it's related to https://github.com/bazelbuild/bazel/issues/6391, but the current issue is more generic. It reports an issue that can appear with scripts which size depends on input files: with small set of input files such actions can work fine, but fail unexpectedly when number of input files grows.

### Any other information, logs, or outputs that you want to share?

_No response_

Start with the linked bazelbuild/examples reproduction, especially rules/shell_command/echo.bzl and its BUILD target, then run `bazel build shell_command:echo` with the large and shortened script variants. Trace the `run_shell` entry point in Bazel's core action handling and identify where arguments are lost when the command is written to a script file. Done means both variants pass and a regression test covers the large-script case.

Written by the indexing model from the issue text.