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Hi Paul,
If your RDS instance is not publicly accessible this means RDS doesn't assign a public IP address to the cluster/instance. Only Amazon EC2 instances and other resources inside the VPC can connect to your cluster/instance. In this case, no resources outside of the VPC can connect to it without extra configuration. For example, you can use VPC peering, an AWS Site-to-Site VPN connection, or an AWS Direct Connect connection to connect resources outside of the VPC to the database.
If it is publicly accessible then RDS assigns a public IP address to the cluster/instance. Amazon EC2 instances and other resources outside of the VPC can connect to your cluster/instance. Even when the database is publicly accessible, access to it is ultimately controlled by the security groups associated with it. Access isn't permitted if these security groups don't permit it.