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The possible ticket visbilities are:

PUBLIC : the tickets are visible by anybody for whom the department of the ticket is visible
SUBJECT_ONLY : the ticket appear on the control panel but their content is not visible by anybody (managers, owner and invited users only).
PRIVATE : the tickets are visible by the managers, the ticket owner and the invited users only.

The default ticket visibility of a department after its creation is defined by this property (set in /properties/config.properties):

#defaultTicketScope=PUBLIC

The default ticket visbility is set for each department and each category and can be changed at any time through the web interface.