It is generating force, but less force than if it were accelerating. The SUM of all forces on an object equals mass times acceleration. In your example, the car tires are putting enough traction force on the ground to equal the air resistance and rolling friction that are pushing against the car.
A good way to visualize it is to ride a bike on flat ground and stop pedaling it at a low speed (say 10 mph). Air resistance and friction are very low at that speed and the force you are contributing is zero. Your MOMENTUM( weight * 10 mph) is still signficant.
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