JAVA_HOME should point to a JDK not a JRE

C:\Users\Administrator>where java
C:\Program Files\Java\jdk-10.0.1\bin\java.exe
C:\Program Files (x86)\Java\jre1.8.0_161\bin\java.exe

C:\Users\Administrator>echo %JAVA_HOME%
C:\Users\Administrator>set JAVA_HOME=C:\Program Files\Java\jdk1.8.0_221
C:\Users\Administrator>echo %JAVA_HOME%

there are no spaces around the equal sign =.

set JAVA_HOME=C:\Program Files\Java\jdk1.8.0_221