import re
import shlex

def GetRulesConvertedToJson2(s):
    result = {}
    key, values = re.match(r'(\w+)\s(.+)', s).groups()
    lexer = shlex.shlex(values, posix=True)
    lexer.whitespace += ','
    lexer.whitespace_split = True
    lexer.quotes = "'"
    result[key] = list(lexer)
    return result

print(GetRulesConvertedToJson2("VEG 1,2,'123 23',5"))