Here are a few examples of costumes that would be not covered enough:
If anyone remembers 'Lil Kim's dress from the MTV video awards a few years ago....she had one breast hanging out and the nipple was covered with just a "pastie." THAT would be a great example of not covered enough!
Also the Jewel bathing suits that need to be unlocked on Dead or Alive Beach Volleyball....that's not enough material either.
Here are some guidelines:
On the bottom, think of the "bloomers" Japanese girls wear for PE. That's a good guideline for how much to cover on the bottom.
On the top, think of how much an average bra covers. Not a sexy demi-cup bra, but the standard everyday bra. The illusion of less is OK. "Chocolate" is a good example. It looks like she is topless with only suspenders covering her breasts. As long as you are wearing something flesh colored on top (sports bra or flesh colored top) this is also OK.