cmd/go: change -tags to a comma-separated list

Using commas makes it possible to put multiple tags into GOFLAGS.
The space-separated form is still recognized and will be maintained.

Alleviates #26849 somewhat.
Fixes #18800 (again).

Change-Id: I6f4cf28ea31e53e21ccbdad6ef1a0aee63b007d7
Reviewed-on: https://go-review.googlesource.com/c/go/+/173438


Run-TryBot: Russ Cox <rsc@golang.org>
TryBot-Result: Gobot Gobot <gobot@golang.org>
Reviewed-by: Brad Fitzpatrick <bradfitz@golang.org>
Reviewed-by: Ian Cottrell <iancottrell@google.com>