It depends on how you are laying it out and what type of requests these are for.
Lets say its a development project and users are requesting enhancements. Ideally you probably don't want your development teams and the project they are actively working on items to be in the same project. You could set up a separate project like you mentioned which is open to everyone. Then a PM can move those issues out of that project into the dev project or create a ticket in the dev project and the PM can mark the original ticket as accepted so the original requester can still access their ticket and see that its been accepted or not.
If you dont want to make a separate project, users can create requests and they can go into the backlog. Your devs would then pull from the backlog and decide what to work on.
You could also utilize Jira Service Desk for this. While agent licenses are more expensive than software, if you eventually move off the free plan and start paying for Jira software licenses for users to just request these enhancements, it would make more sense to use JSD so they can have free customer accounts to make these requests on a public portal.
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