I also have this problem. I could not start a new game without deleting my savegame, which is BS. Cloud synchronization is off, as it always should be ;-)
I found out that the most sensible thing to do is:
1. deleting your savegame (if you want to start anew)
2. disabling cloud synchroniszation (should never be used in any game)
3. starting a new game
4. ALT + F4 after the 1st video but before doing any driving
5. restart NFS, now you can go into the options menu (finally)
6. change options to suit your playstyle (subtitles, car sounds, etc.)
7. finally resume / start playing the game
I first played through the Prologue but had to constantly reduce sound volume while driving and increase when people were talking as the cars are way too loud and the talking is rather whispering. In effect I did not grasp anything the Prologue / NFS Payback was about. But Im happy to be able to finally go into the options menu after the first video with ALT + F4 / restart. Now I can increase the resolution from 1024 x 768 to 1920 x 1080, enable subtitles and reduce car sounds.