Privatizing the Federal Aviation Administration, an idea favored by Vice-President Al Gore's government reinventors, doesn't look as if it will make it off the ground. Gore wants to make the FAA work better by turning it into a government-sponsored corporation supported by user fees. Airlines, believing that privatization could bring quicker updating of the FAA's creaky technology, support the idea. But general aviation interests, fearing higher costs, are opposed. And on Capitol Hill, many lawmakers believe that privatization could lead to cost-cutting at the expense of safety.