[BUG] State.apply list of state run despite state disable

Description
When you disable states with state.disable, you cannot run the state individually. But when you give a comma separated list of disable state they are launch despite they are disabled.

Setup

• on-prem machine
• VM (Virtualbox, KVM, etc. please specify)
• VM running on a cloud service, please be explicit and add details
• container LXC (Kubernetes, Docker, containerd, etc. please specify)
• or a combination, please be explicit
• jails if it is FreeBSD
• [] classic packaging
• onedir packaging
• used bootstrap to install

Steps to Reproduce the behavior

• Disable at least 2 state : state.disable sls1,sls2
• launch state.apply sls1,sls2

Like this the 2 disabled state will execute

Expected behavior

We expected the same behavior than when you give an explicit list on command line

salt-call state.apply "[sls1,sls2]"                                                                                                                                                                                                             ~
local:
    Data failed to compile:
----------
    The state file "sls1" is currently disabled, to re-enable, run state.enable sls1.
----------
    The state file "sls2" is currently disabled, to re-enable, run state.enable sls2.

Versions Report

Salt Version:
          Salt: 3004.1

Dependency Versions:
          cffi: Not Installed
      cherrypy: Not Installed
      dateutil: 2.5.3
     docker-py: Not Installed
         gitdb: Not Installed
     gitpython: Not Installed
        Jinja2: 2.9.4
       libgit2: Not Installed
      M2Crypto: Not Installed
          Mako: Not Installed
       msgpack: 0.6.2
  msgpack-pure: Not Installed
  mysql-python: Not Installed
     pycparser: Not Installed
      pycrypto: Not Installed
  pycryptodome: 3.6.1
        pygit2: Not Installed
        Python: 3.5.3 (default, Apr  5 2021, 09:00:41)
  python-gnupg: Not Installed
        PyYAML: 3.12
         PyZMQ: 17.1.2
         smmap: Not Installed
       timelib: Not Installed
       Tornado: 4.5.3
           ZMQ: 4.2.1

System Versions:
          dist: debian 9 stretch
        locale: UTF-8
       machine: x86_64
       release: 5.11.22-5-pve
        system: Linux
       version: Debian GNU/Linux 9 stretch

Additional context
After code check, i think the problem can be on the module state on function sls : https://github.com/saltstack/salt/blob/a1a07d1c8c07d5df9ff30c74ba5d75530f019a86/salt/modules/state.py#L1159

the type of mods is check for disabled on line 1292
https://github.com/saltstack/salt/blob/a1a07d1c8c07d5df9ff30c74ba5d75530f019a86/salt/modules/state.py#L1292-L1295

but the conversion of mods from string to list appears on line 1390
https://github.com/saltstack/salt/blob/a1a07d1c8c07d5df9ff30c74ba5d75530f019a86/salt/modules/state.py#L1390
Maybe the conversion of mods need to be made earlier.

This is all that i can do with my knowledge of code, i am not capable of made PR and edit code i can only made some analyse like this, hope that it can help.

Start in salt/modules/state.py, especially the sls function around the disabled-state check near lines 1292-1295 and the mods string-to-list conversion near line 1390. Reproduce the issue with state.disable sls1,sls2 followed by state.apply sls1,sls2, then compare it with the explicit list behavior. Done means comma-separated disabled states are rejected instead of executed.