Partly, because the name of the package itself violates the usual module property that the module path (for all modules other than `std`) is a prefix of the package import path. We
define a “module” as “a collection of packages that are released, versioned, and distributed together”, but the "command-line-arguments" package isn't released or versioned: it contains whatever files you happened to pass on the command line, not a well-defined set of files that is always the same for a given module version.
Partly, because it isn't included in the usual module operations. For example, source files tagged `//go:build ignore` can be used to create a command-line-arguments package, but wouldn't be included by `go mod tidy` or `go mod vendor`.
And partly, because the command-line-arguments package can be loaded from literally anywhere: if you're in a workspace containing three different modules, and you run `go build /tmp/foo.go`, which of those three modules contains `command-line-arguments`? We could make up an arbitrary answer, or try to find the containing module and fall back to “no module”, but given how oriented cmd/go is toward packages (as opposed to files) it seemed more consistent to always treat individual files passed on the command line as separate from the module.